TABLE OF CONTENTS

Page

I. Introduction.......................................................................................................................1

II. Background .......................................................................................................................4

III. Standards and Authorities .................................................................................................7

IV. Discussion and Analysis .................................................................................................18

V. Summary .........................................................................................................................68

VI. Recommendations...........................................................................................................69

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In addition, the President can activate the National Guard to participate in federal missions, both
domestically and overseas. When federalized, Guard units fall under the same military chain of
command as active duty and reserve personnel. (Ex 14)

The senior military commander for each state and territory is The Adjutant General
(TAG) and in most cases reports directly to their Governors (32 U.S. Code § 314.Adjutants
general). Under the District of Columbia Code, The President of the United States (POTUS)
serves as the Commander in Chief of the District of Columbia National Guard when it is in its
militia status. By Executive Order 11485, October 1, 1969, the President delegated almost all
authorities over the DCNG to the Secretary of Defense, who subsequently delegated certain
authorities to the Secretary of the Army (SecArmy) and the Secretary of the Air Force (SecAF).
Consequently, the authorities normally exercised by a state governor have been divided among
the SecArmy, SecAF, and the Commanding General (CG) of the DCNG. The SecArmy has
additional delegated authority to execute POTUS’ authority to order the DCNG to aid civil
authorities at the request of the Mayor of the District of Columbia, the United States Marshal for
the District of Columbia, or the National Capital Service Director. Unique to the DCNG is that
when called to militia service, National Guard members will serve in a federal militia status and
not State Active Duty due to the unique governmental construct of the District of Columbia.
(Ex 79)

The National Guard Bureau (NGB) is a joint activity of the Department of Defense and is
led by the Chief, National Guard Bureau (CNGB). NGB is not a command so it has no
command authority over the National Guard in the several states. DODD 5105.77 says, “The
NGB is the focal point at the strategic level for non-federalized National Guard matters that are
not the responsibility of the Secretary of the Army, the Secretary of the Air Force, or the CJCS,
in law or DoD policy.” (Ex 28:2) More specific to this investigation, this same issuance speaks
to NGB’s role in coordinating the use of the National Guard for domestic missions as it “Assists
the Secretary of Defense in facilitating and coordinating with other federal agency heads, the
Adjutants General of the States, and the Commanders of United States Northern Command and
United States Pacific Command, the use of National Guard personnel and resources for
operations conducted, in accordance with [Title 32, United States Code] or in support of State
missions. The Chief, NGB, coordinates such matters with the Assistant Secretary of Defense for
Homeland Defense and Global Security (ASD(HD&GS)), the CJCS, and the Secretary of the
Army or the Secretary of the Air Force as they pertain to their respective Military Departments.”
(Ex 29:7)

III. STANDARDS AND AUTHORITIES

The “Militia Clauses” in the U.S. Constitution, Article I, Section 8, Clauses 15-16,
describes how the state militias (now National Guard) may be used for federal service with some
control reserved for the states. This complex federal and state governance of the National Guard
for modern day training, deployments, and domestic responses has not become easier. This
7

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investigation is somewhat unusual in that much of the focus centers on a high volume of
overlapping standards, particularly for Defense Support of Civil Authorities (DSCA). The
interpretations and implementations of these varied authorities differ across the operations,
intelligence, intelligence oversight, and legal communities.

The purpose of this section is not to resolve many of the overlapping authorities that
come into play when examining a topic as vast as this. Rather, the intent here is to set forth and
demonstrate the complexities involved, while creating a logical and usable framework with
which to structure the analysis that will follow. The authorities that appear on the pages that
follow are organized along three major considerations: 1) Intelligence Oversight considerations
and whether or not personal information of U.S. persons was collected in violation of law or
policy; 2) An examination of the process by which mission approval should rightfully flow; and
3) The matter of National Guard members operating in a correct duty status.

Intelligence Oversight

Defense Intelligence Components must follow SecDef and Attorney General approved
procedures for the conduct of DoD intelligence activities. This includes National Guard
intelligence resources. If specifically authorized by SecDef, Defense Intelligence Components
may conduct non-intelligence missions under the authorities that apply to those missions.

DODM 5240.01, Procedures Governing the Conduct of DoD Intelligence Activities,

August 8, 2016, states as follows:

1.1. APPLICABILITY. This issuance applies to…all other organizational entities within the
DoD, including…the National Guard, or anyone acting on behalf of those components or
elements, when conducting intelligence activities under DoD’s authorities (referred to
collectively in this issuance as the “DoD Components”).

1.2. POLICY.

b. In carrying out intelligence activities, the DoD Components:

(1) Are authorized to collect, retain, and disseminate information concerning U.S.
persons and conduct other activities only in accordance with the procedures in this
issuance.

1.3. PROCEDURES.

b. Procedures 11 through 15 of DoD 5240.1-R will remain in effect until incorporated and
cancelled by other DoD guidance.

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 3.1. PROCEDURE 1. GENERAL PROVISIONS.

a. Scope.

(1) The Defense Intelligence Components provide necessary information about the activities,
capabilities, plans, and intentions of foreign powers, organizations, and persons, and their agents.
The procedures in this issuance govern the conduct of Defense Intelligence Components and non-
intelligence components or elements, or anyone acting on behalf of those components or
elements, when conducting intelligence activities under DoD’s authorities.
…

(3) Activities not governed by this issuance will be carried out in accordance with other
applicable policies and procedures, including Presidential directives that govern those particular
missions or functions. When specifically authorized by the Secretary of Defense or delegee to
perform missions or functions other than foreign intelligence or CI, Defense Intelligence
Components will comply with DoD policy applicable to DoD non-intelligence organizations and
any specific operational parameters specified by the Secretary of Defense for that mission or
function. Examples of such activities are:

(a) Law enforcement or civil disturbance activities conducted under DoD authorities or activities
of individuals executing a law enforcement, physical security, or force protection mission.

(b) Defense support of civil authorities, when directed by the Secretary of Defense. Defense
support of civil authorities activities is conducted consistent with the National Response
Framework, and includes the provision of humanitarian assistance; disaster readiness, response,
and recovery activities; and environmental and security vulnerability studies. (Ex 16:5-8)

DoD 5240.1-R, Change 2, Procedures Governing Activities of DoD Intelligence

Components That Affect US Persons, 26 Apr 17, states as follows:

Chapter 12

Procedure 12. Provision of Assistance to Law Enforcement Authorities

C12.1. Applicability - This procedure applies to the provision of assistance by DoD

intelligence components to law enforcement authorities. It incorporates the specific
limitations on such assistance contained in E.O. 12333 (reference (a)), together with the
general limitations and approval requirements of DoD Directive 5525.5 [replaced by DoDI
3025.21, Defense Support of Civilian Law Enforcement Agencies, CH1 (2019)].

C12.2.2. Types of Permissible Assistance. DoD intelligence components may provide the
following types of assistance to law enforcement authorities:

C12.2.2.4. Personnel who are employees of DoD intelligence components may be

assigned to assist Federal law enforcement authorities, and, when lives are endangered,
State and local law enforcement authorities, provided such use is consistent with, and has been

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 approved by an official authorized pursuant to, Enclosure 4 of [DoDI 3025.21, Defense Support
of Civilian Law Enforcement Agencies, CH1 (2019)]. Such official shall ensure that the General
Counsel of the providing DoD Component concurs in such use. (Ex 18:8-9)

DoDD 5240.01, DoD Intelligence Activities, August 27, 2007, Incorporating Change 2,
March 22, 2019, states as follows:

5.4. The Secretaries of the Military Departments with IC elements shall:

5.4.1. Organize, staff, train, and equip the intelligence assets of the Military Departments,
including CI, signals intelligence, geospatial intelligence, measurement and signatures
intelligence, and human intelligence assets, to support operational forces, national-level
policy-makers, and the acquisition community. (Ex 17:4)

DODD 3025.18, Defense Support of Civil Authorities (DSCA), December 29, 2010,
Incorporating Change 2, March 19, 2018, states in relevant part:

4.u. Use of intelligence assets for DSCA purposes must be in accordance with DoD
Directive 5240.01, “DoD Intelligence Activities,” August 27, 2007, as amended. (Ex 15:7)

CNGBI 2000.01C, National Guard Intelligence Activities, 14 August 2018, states in

relevant part:

4a. Federal intelligence and intelligence, surveillance, and reconnaissance (ISR) equipment as
defined in the glossary is not used for activities other than authorized foreign intelligence or
counterintelligence (CI) activities and associated training unless approved by the Secretary of
Defense (SecDef) or his or her designee IAW references a through d. (Ex 19:1)

Glossary:

Federal Intelligence and Intelligence, Surveillance, and Reconnaissance Equipment: Equipment

purchased with Military Intelligence Program or National Intelligence Program monies. 3 (Ex
19:20)

CNGBM 2000.01, National Guard Intelligence Activities, 11 April 2019, states:

ENCLOSURE A

PROCEDURES

12.a.3. Use of Federal Intelligence and Intelligence, Surveillance, and Reconnaissance (ISR)
Equipment. When the request for support to a civilian LEA involves the use of Federal
intelligence or ISR equipment, it will be processed for SecDef approval IAW this procedure.

3
The appropriateness of this definition will be examined later in the report.
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 …

12.d. Requests for support requiring SecDef approval under this procedure will be staffed from
the NG JFHQs-State J2 to NGB-J2. The following documents are required: a request for
assistance from the LEA, a request for SecDef approval from TAG, a legal review by the State
JA validating the legality of providing NG intelligence component support, a concept of
operations for the support, and a memorandum of agreement between the NG JFHQs-State and
the supported LEA.
…

ENCLOSURE E

DOMESTIC OPERATIONS

3.b. IAA [Incident Awareness and Assessment]. NG intelligence component personnel and non-
intelligence equipment may be used for IAA to fulfill TAG requirements for situational
awareness or planning purposes, or upon receipt of an NG JFHQs-State or NGB-validated
primary agency or lead Federal agency request for assistance. IAA activities will not be used to
collect USPI without consent. The agency must be operating within its lawful function and
authority, such as at the request of the office of the Governor, the primary or lead Federal, State,
or tribal agency for the event; an Emergency Management Assistance Compact (EMAC) 4
request; or a Mission Assignment from the Federal Emergency Management Agency (FEMA).

(1) When authorized by the SecDef or delegatee, or directed by the President, NG intelligence
capabilities may support Federal, State, local, and tribal agencies in certain IAA mission sets,
including situational awareness; SAR; damage assessment; evacuation monitoring; chemical,
biological, radiological, nuclear, and explosives (CBRNE) assessment; hydrographic survey; and
dynamic ground coordination.

(2) Processing, assessment, and dissemination. During domestic operations, the NG T-32
intelligence component may use unclassified equipment to process, assess, and disseminate final
products based on that analysis of:

(a) Imagery, geospatial data, and information collected from cameras, video, electro-optical
sensors, IR, and forward-looking infrared radar (FLIR) collected by NG assets.

(b) Information collected from government agencies operating within their lawful functions and
authorities.

4
“The EMAC is a federal statute, nationally accepted by all states, to allow interstate mutual-aid agreement that
enables states to share resources and certifications during times of disaster.” Joint Publication 3-28, Defense
Support to Civil Authorities, p. I-7. “The purpose of this compact is to provide for mutual assistance between the
states entering into this compact in managing any emergency disaster that is duly declared by the Governor of the
affected state, whether arising from natural disaster, technological hazard, man-made disaster, civil emergency
aspects of resources shortages, community disorders, insurgency, or enemy attack.” Public Law 104–321.
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 (c) Analysis of baseline imagery for operational planning (for example, to determine probable
hurricane landfall and post-landfall damage and to assess damage).

(3) Upon SecDef approval, the NG T-32 intelligence component may use Federal intelligence
equipment to process, assess, and disseminate final products within the parameters set by the
SecDef.

JP 3-28 – Defense Support Of Civil Authorities, states as follows:

Chapter IV - Other Domestic Activities And Special Events:

9. Incident Awareness and Assessment

IAA may be requested to support first responders and decision makers in the following eight
mission areas: situational awareness, damage assessment, evacuation monitoring, SAR, CBRN
assessment, hydrographic survey, dynamic ground coordination, and cyberspace incident
response. SecDef approval of the DSCA EXORD may authorize traditional intelligence
capabilities to conduct DSCA missions for non-intelligence purposes. … While the use of
intelligence assets by the NG requires SecDef approval, the use of non-intelligence assets in a
Title 32, USC, or state active duty status for IAA requires approval of the governor. NG complies
with procedures and restrictions established in the CNGB Manual 2000.01, National Guard
Intelligence Activities. (Ex 27:69)

DOD Dictionary of Military and Associated Terms (as of June 2020)

2. Purpose. This publication supplements standard English-language dictionaries and standardizes

military and associated terminology to improve communication and mutual understanding within
DOD with other US Government departments and agencies and among the United States and its
allies.

3. Application. This publication applies to the Office of the Secretary of Defense, the Services,
the Joint Staff (JS), combatant commands, DOD agencies, and all other DOD components. It is
the primary terminology source when preparing correspondence, to include policy, strategy,
doctrine, and planning documents.

intelligence — 1. The product resulting from the collection, processing, integration, evaluation,
analysis, and interpretation of available information concerning foreign nations, hostile or
potentially hostile forces or elements, or areas of actual or potential operations. 2. The activities
that result in the product. 3. The organizations engaged in such activities.

surveillance — The systematic observation of aerospace, cyberspace, surface, or subsurface

areas, places, persons, or things by visual, aural, electronic, photographic, or other means. (JP 3-
0)

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 reconnaissance — A mission undertaken to obtain, by visual observation or other detection
methods, information about the activities and resources of an enemy or adversary, or to secure
data concerning the meteorological, hydrographic, or geographic characteristics of a particular
area. (JP 2-0)

intelligence, surveillance, and reconnaissance — 1. An integrated operations and intelligence

activity that synchronizes and integrates the planning and operation of sensors, assets, and
processing, exploitation, and dissemination systems in direct support of current and future
operations. 2. The organizations or assets conducting such activities. Also called ISR.

Approval Authority

Defense Support of Civil Authorities by National Guard personnel in Title 32 status

requires approval of SecDef and concurrence of the relevant Governors, and is provided
consistent with the Defense Support to Civil Authorities Execute Order (“DSCA EXORD”).
However, the DSCA EXORD was not used here, so that authority was not reached. Other
activities require tailored approval and coordination with multiple offices across DoD as
specified in policy. There is a limited exception for federal commanders and other DoD officials
to use Immediate Response Authority, on request from civil authorities, to save lives, prevent
human suffering, or mitigate great property damage. DoD policy recognizes the use of state
Immediate Response Authority when “State officials” approve National Guard personnel in State
Active Duty status, or Title 32 status to respond under certain conditions.

DODD 3025.18, Defense Support of Civil Authorities (DSCA), December 29, 2010,
Incorporating Change 2, March 19, 2018, states as follows:

2. Applicability. This Directive:

b. Applies to the Army National Guard and the Air National Guard (hereafter referred to
collectively as the “National Guard”) personnel when under Federal command and
control. Also applies to National Guard personnel when the Secretary of Defense
determines that it is appropriate to employ National Guard personnel in title 32, U.S.C.
(Reference (f)), status to fulfill a request for DSCA, the Secretary of Defense requests the
concurrence of the Governors of the affected States, and those Governors concur in the
employment of National Guard personnel in such a status.

c. Applies to all DSCA (except the specific forms of DSCA listed in paragraph 2.d. of this
section) …

4. Policy. It is DoD policy that:

c. DSCA is initiated by a request for DoD assistance from civil authorities or qualifying entities
or is authorized by the President or Secretary of Defense.
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 d. All requests for DSCA shall be written, and shall include a commitment to reimburse the
Department of Defense in accordance with sections 5121, et. seq., of Reference (g) (also known
as “The Stafford Act”), section 1535 of title 31, U.S.C. (also known as “The Economy Act”
(Reference (y))), or other authorities except requests for support for immediate response, and
mutual or automatic aid ... Unless approval authority is otherwise delegated by the Secretary of
Defense, all DSCA requests shall be submitted to the office of the Executive Secretary of the
Department of Defense. For assistance provided according to paragraph 4.i of this section, civil
authorities shall be informed that oral requests for assistance in an emergency must be followed
by a written request that includes an offer to reimburse the Department of Defense at the earliest
available opportunity…

e. All requests from civil authorities and qualifying entities for assistance shall be evaluated for:

(1) Legality (compliance with laws).

(2) Lethality (potential use of lethal force by or against DoD Forces).
(3) Risk (safety of DoD Forces).
(4) Cost (including the source of funding and the effect on the DoD budget).
(5) Appropriateness (whether providing the requested support is in the interest of
the Department).
(6) Readiness (impact on the Department of Defense’s ability to perform its other
primary missions).

i. Federal military commanders, Heads of DoD Components, and/or responsible DoD civilian
officials (hereafter referred to collectively as “DoD officials”) have IMMEDIATE RESPONSE
AUTHORITY as described in this Directive. In response to a request for assistance from a civil
authority, under imminently serious conditions and if time does not permit approval from higher
authority, DoD officials may provide an immediate response by temporarily employing the
resources under their control, subject to any supplemental direction provided by higher
headquarters, to save lives, prevent human suffering, or mitigate great property damage within the
United States. Immediate response authority does not permit actions that would subject civilians
to the use of military power that is regulatory, prescriptive, proscriptive, or compulsory.

(1) DoD officials must exercise judgment based on available information and resources in
determining the maximum allowable distance from the installation or facility the immediate
response may take place. DoD officials should consider challenges such as sustainment,
transportation, communications, mission impact, and increased risk (see Reference (e)).

(3) The civil authority’s request for immediate response should be directed to the installation
commander or other appropriate DoD official responsible for the installation, with further
dissemination as needed.

j. The authority of State officials is recognized to direct a State immediate response using
National Guard personnel under State command and control (including personnel in a title 32,

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 U.S.C. (Reference (f)) (hereafter referred to as “Title 32”) status) in accordance with State law,
but National Guard personnel will not be placed in or extended in Title 32 status to conduct State
immediate response activities.

10. SECRETARIES OF THE MILITARY DEPARTMENTS. The Secretaries of the Military

Departments, in addition to the responsibilities in section 9 of this enclosure, shall:

c. In coordination with the relevant geographic Combatant Commander, direct relevant DoD
officials under that Secretary’s supervision, direction, and control to take appropriate actions to
share information on DSCA capabilities with civil authorities at all levels. DoD officials should
share information prior to need, when appropriate, to facilitate requests for assistance, including
under immediate response authority, when a need arises. This capability information should not
list specific units or assets.

13. CHIEF, NGB. The Chief, NGB, under the authority, direction, and control of the Secretary of
Defense, consistent with paragraphs 5a, 5b, and 5c of DoDD 5105.77 (Reference (an)),and in
addition to the responsibilities in Reference (ao), shall:

b. Report National Guard support of civil authorities or qualifying entities when using Federal
resources, equipment, and/or funding to the NJOIC. 5 (Ex 15:1-19)

DoDI 3025.21, Defense Support of Civilian Law Enforcement Agencies, February 27,
2013, Incorporating Change 1, Effective February 8, 2019, states as follows:

1. PURPOSE.

a. Establishes DoD policy, assigns responsibilities, and provides procedures for DoD support to
Federal, State, tribal, and local civilian law enforcement agencies, including responses to civil
disturbances within the United States …

2. APPLICABILITY. This Instruction:

d. Applies to National Guard (NG) personnel in Reference (d) [specific Title 10 sections] status
only.

f. Does not apply to:

(3) The Defense Intelligence and Counterintelligence Components, when providing intelligence
assistance to civilian law enforcement activities in accordance with paragraph 2.6. of Executive
Order 12333 … and Procedure 12 of DoD 5240.1-R …

5
Note: This is a policy gap in either the DoDD or NGB policy considerations. Immediate Response Authority
(IRA) by state officials triggers federal resources. States are not currently required to report such expenditures to
NGB when IRA authority is used. NGB acknowledged this disconnect. (Ex 89:1)
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 (5) NG personnel in State active duty or [Section 502 of ] title 32, U.S.C…status. (Ex 21:1-2)

DODI 3025.22, The Use of the National Guard for Defense Support of Civil Authorities,
July 26, 2013 Incorporating Change 1, May 15, 2017, states as follows:

2. APPLICABILITY. This instruction:

b. Does not apply to:

(1) National Guard activities conducted while on active duty or in federal service … or State
immediate response activities using National Guard personnel that are conducted in accordance
with paragraph 4.h. of [DoD Directive 3025.18].

(2) National Guard activities conducted in State active duty status, including State immediate
response activities using National Guard personnel, activities that are determined to be the
responsibilities of the individual States, or activities conducted through the execution of mutual
aid and assistance agreements between the States or local civil authorities.

(4) National Guard training activities that are conducted in a duty status pursuant to section
502(a) or 502(f) of Reference (a).

(7) The use of the District of Columbia National Guard for DSCA, which will be handled in
accordance with Executive Order 11485 (Reference (j)) and the Secretary of Defense
Memorandum (Reference (k) (Ex 22:1-2)

Status of Personnel

National Guardsmen may be in one of four “statuses” 6:

Command Missions Funding

State Active Duty Governor State-directed State (Federal funds for
equipment)
Title 32, Sec. 502(a), Governor Primarily training for Federal
Inactive Duty federal active duty
Training/Active mission
Training (i.e.,
traditional Guard
service - one weekend a
month plus two weeks)

6
This does not include NG technicians or Title 5 National Guard civilian employees. See generally, NGB/JA, 2019
Domestic Operations Law and Policy, p. 25-27. (Ex 23) However, people in those categories were not used here.

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 Title 32, Sec. 502(f), Governor As directed by Federal
“training or other duty” President or SecDef; as
directed by SecArmy or
SecAF under certain
conditions
Title 10 Federal Military commander Military operations Federal
Active Duty

See generally, 2019 Domestic Operations Law and Policy, Sec. 5. (Ex 23)

32 USC §502, Required Drills and Field Exercises, states as follows

(f)(1)Under regulations to be prescribed by the Secretary of the Army or Secretary of the Air
Force, as the case may be, a member of the National Guard may-…be ordered to perform training
or other duty in addition to that prescribed under subsection (a).

(2) The training or duty ordered to be performed under paragraph (1) may include the following:

(A) Support of operations or missions undertaken by the member's unit at the request of the
President or Secretary of Defense.

(B) Support of training operations and training missions assigned in whole or in part to the
National Guard by the Secretary concerned, but only to the extent that such training missions and
training operations-

(i) are performed in the United States or the Commonwealth of Puerto Rico or possessions of the
United States; and

(ii) are only to instruct active duty military, foreign military (under the same authorities and
restrictions applicable to active duty troops), Department of Defense contractor personnel, or
Department of Defense civilian employees. (Ex 24:1-2)

CNGBI 1302.01, Guidance for Members Performing Duty Under the Authority of 32
USC § 502(f), 23 Apr 2012, Certified as current 12 July 2017, states as follows:

4(a) - Members performing duty under the authority of 32 U.S.C. §502(f) will not perform duties
that are not specific requirements of the mission for which the members were ordered to duty. If
circumstances require a change of duty, Commanders must amend/curtail the current order.

4(e) - Commanders may order members performing duty under 32 U.S.C. §502(f) to respond to
an emergency in accordance with the Immediate Response Authority and State law. (Ex 25:1-2)

CNGBI 2000.01C, National Guard Intelligence Activities, 14 August 2018, states as

follows:

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 4. It is NGB policy that NG intelligence personnel operating in a Title 32 (T32) status operate as
members of the Department of Defense (DoD) intelligence component and must comply with all
DoD guidance and Federal laws applicable to the component, including all intelligence oversight
(IO) rules IAW references b and c. (See also, CNGBM 2000.01A, Encl A, para 12.a.(3) and
12.d.; Encl. E, para 3.b. (Ex 26:1)

IV. DISCUSSION AND ANALYSIS

The investigating team interviewed 31 witnesses from the NGB and field personnel who
conducted or supported the operations in Minnesota, Arizona, California, and Washington, DC.
Mission data and electronic products were preserved and analyzed for the presence of personal
information on individuals.

Overarching Review of Collection and Authorities

Collection

The evidence showed RC-26B aircraft flew in support of National Guard elements and/or
law enforcement officials by providing situational awareness from the air. Such visuals of major
crowd movements or fires near government buildings, property, or roads helped officials on the
ground maintain near real time awareness, all in public places, without collecting personal
information on or identifying individual citizens. There is no evidence individuals or specific
organizations were targeted, followed, or identified.

The RC-26B sensors, both infrared and electro-optical, have enough resolution to show
distinct architectural features of buildings and allow identification of a place, at least to a trained
analyst or person familiar with the area under observation. They also have enough resolution to
show basic features of vehicles that may allow a trained observer to identify such things as make
and model, in some cases, but not to read license plates. The sensors can also identify objects as
people, and detect some activities such as walking or riding a bicycle. By associations, they can
lead a trained observer to differentiate between military members and civilians by their patterns
of movement – more ordered as compared to more random – and by association with military
vehicles. (Ex 30:19) However, the sensors do not have sufficient resolution to identify facial
features or even the gender or race of a person. (Ex 30:18; Ex 31) In addition, none of the
aircraft for the flights in question carried signals intelligence equipment, and thus, did not have
any capability for collecting information from cell phones or radios. (Ex 13b)

Here is a representative infrared image from one of the flights:

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 (Ex 87)

Although it is difficult in an urban environment, it appears it would be possible to

connect activities to an individual. One witness described developing a “pattern of life” which is
a term-of-art in intelligence practice for following a person or object to discern patterns that
allow forecasts of movements of that person or object. (Ex 54:2) That requires some amount of
discernibility among objects. For instance, a flight could observe suspicious activity, follow the
person, and law enforcement on the ground could be vectored by a control center or by a law
enforcement officer on-board to the individual. In that way, earlier activity of the person
observed from the flight could be connected with the person. That connection could be
especially strong if there was a video recording. If the suspicious activity was connected to a
crime, then either the observers or the recording could be used as witnesses or evidence. It is this
concern that supports the DoD policy on SecDef or designee approval being required to use
intelligence assets for non-intelligence purposes due to the concern that military capabilities
could become law enforcement capabilities, absent proper oversight. It is important to
emphasize here, though, that there is no evidence that such a risk manifested in any of these RC-
26B flights.

A particularly concerning situation, however, appeared in the Arizona operation. The

Concept of Operations briefing said, “AZ ANG RC-26 capability will provided (sic) [Phoenix
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 Para. 3.1.a.(3) then provides a vital carve-out:

Activities not governed by this issuance will be carried out in accordance with other
applicable policies and procedures, …. When specifically authorized by the Secretary of
Defense or delegee to perform missions or functions other than foreign intelligence or CI,
Defense Intelligence Components will comply with DoD policy applicable to DoD non-
intelligence organizations and any specific operational parameters specified by the
Secretary of Defense for that mission or function. Examples of such activities are:

(a) Law enforcement or civil disturbance activities conducted under DoD authorities …

(b) Defense support of civil authorities, when directed by the Secretary of Defense.
(Emphasis added) (Ex 16)

In other words, intelligence resources (i.e., people, equipment, and processes) can be
treated as non-intelligence resources if SecDef or a delegee approve that use. 8 Once approved,
intelligence resources follow any applicable non-intelligence rules.

In this case, there is no dispute that no one asked for specific SecDef permission under
that section of DoDM 5240.01. 9 The only issue is whether or not this rule requiring SecDef
permission applies to RC-26B operations. After carefully examining the laws, instructions, rules
and authorities, the preponderance of the evidence logically supports that the rule does apply.

DoDM 5240.01, Glossary, says:

Defense Intelligence Components. All DoD organizations that perform foreign intelligence or CI
missions or functions, including: … The foreign intelligence … elements of the Active and
Reserve Components of the Military Departments …

The National Guard recognizes that rule in its own policy. It is NGB policy that National Guard
intelligence personnel operating in a Title 32 status operate as members of the Department of
Defense (DoD) intelligence component and must comply with all DoD guidance and Federal laws
applicable to the component, including all intelligence oversight (IO) rules. (Ex 19:1; Ex
20:28,42)

The NGB policy then creates a carve-out:

8
There is a parallel provision in DoD 5240.1-R, Procedure 12. However, challenges with applying that rule in this
context are discussed in later analysis, below.
9
The CNGB asked SecDef for permission to use 32 U.S.C. 502(f) status. (Ex 8) Within that request was a note that
the NG intended to use IAA (Incident Assessment and Awareness) and UPAD (Unclassified Processing and
Dissemination). Nothing in the request would indicate that the NG treated these as intelligence resources, nor did
the email flag the request as seeking SecDef approval under DoDM 5240.01, para. 3.1.a.(3)(a) or (b).
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 Federal intelligence and intelligence, surveillance, and reconnaissance (ISR) equipment
as defined in the glossary is not used for activities other than authorized foreign
intelligence or counterintelligence (CI) activities and associated training unless approved
by the Secretary of Defense (SecDef) or his or her designee IAW [Executive Order
12333, DoDD 5148.13, DoDM 5240.01, and DoD 5240.1-R.]. (Emphasis added) (Ex
19:1)

The Glossary says:

Federal Intelligence and Intelligence, Surveillance, and Reconnaissance (ISR) Equipment is

equipment purchased with Military Intelligence Program or National Intelligence Program
monies. (Ex 19:20)

The NGB then applies this policy to the RC-26B as follows:

[Proper Use Memorandums are not required for Counterdrug missions if] “The equipment being
used for CD missions is CD-funded equipment (in other words, the UH-72 or RC-26B) by
aircrews on CD-funded orders and is not ISR equipment … (such as the MC-12, JSTARS … ).
(Ex 20:49)

This is the point at which the NG policy appears unsupported. 10

First, there is no higher level DoD or other federal policy that would restrict ISR
equipment only to that which is “purchased with Military Intelligence Program or National
Intelligence Program monies.” 11 This definition is not simply an NGB implementation of a
higher-level policy, but appears to be a policy decision in itself. It creates the scope of a rule, but
the scope of an intelligence oversight rule rests with USD (I&S) and DoD SIOO rather than with
NGB. The references in the CNGBI do not cite, for instance, to any policy memorandum from
them that concurs with the NGB interpretation.

Second, applying fiscal law ought to be a factor, and the use of intelligence funding ought
to create a clear presumption that particular equipment is intelligence equipment, but it may be
one of many factors. For instance, the DoD doctrinal definitions of ISR, intelligence, and
10
The NGB/JA 2019 Domestic Operations Law and Policy deskbook does not address this issue directly, but in
fairness, it is intended to provide only a “framework” It refers to CNGBI 2000.01C and CNGBM 2000.01A, but
simply says:
(2) NG intelligence personnel and equipment may not be used for intelligence activities other than
FI or CI unless that use is approved by the SecDef or his designee.
(3) NG intelligence personnel in SAD are not members of the DoD intelligence component, and are
prohibited from engaging in DoD intelligence and CI activities, and from using DoD intelligence
(IAA) and CI equipment and facilities unless authorized by SecDef (or designee). (Ex 23:10, 155)
.
It does not address the definition of federal ISR equipment nor mention the RC-26B. NGB/JA may want to include
some discussion on federal ISR equipment in a future edition.
11
The NGB/JA legal reviews of CNGBI 2000.01C and CNGBM 2000.01A do not address this issue.
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 One witness pointed to the concept that the RC-26B was not an active-duty “program of
record” as part of their analysis as to why the RC-26B is not an intelligence asset. (Ex 34) That
concept is misplaced. First, the phrase appears nowhere in any intelligence oversight rule –
Executive Order 12333, DoDD 5148.13, DoDM 5240.01, or DoD 5240.1-R – so the people
writing the intelligence oversight rules did not consider it a key factor in their application.
Second, the phrase “program of record” is an acquisition term which can be applied to all
acquisitions, from weapons to weapons systems to logistics systems to ISR platforms. 14

So just as NIP or MIP funding creates a strong presumption that an asset acquired with
those funds is an intelligence asset, so acquisition as an intelligence program of record likewise
creates the same strong presumption. In fact, the two are likely synonymous – that is, an
acquisition activity that is labeled as an intelligence program of record is almost certainly funded
with NIP or MIP funds, and is almost certainly an ISR asset subject to intelligence oversight.
However, that does not mean the opposite corollary is always true.

That is, an asset that performs intelligence activities may have been acquired with non-
intelligence funds. It is the fact of the intelligence activities that drives the asset to being subject
to intelligence oversight. An asset may have been purchased with funds with broad purposes, or
the acquisition was done with the wrong funds, or the acquisition may have been done with a
mixture of funds. But if is it used for intelligence activities, then it is subject to intelligence
oversight rules. 15

The analysis is fairly straightforward: the aircraft, with all its systems, is federal
equipment; if used for a federal mission by active duty forces, the RC-26B would be and was
used as an ISR asset; as an ISR asset, it would be subject to intelligence oversight rules; federal
equipment does not change its character simply by being in the hands of the National Guard,
even if funded by the National Guard, absent some special permission to the contrary. It cannot
be that intelligence equipment moves in and out of oversight, especially for something so
significant as a requirement for SecDef approval for law enforcement support, simply by
changing its funding line or its position in its lifecycle from acquisition through use through

14
See, for instance, Defense Acquisition University Glossary Definition. “Program of Record: 1.) Program as
recorded in the current Future Years Defense Program (FYDP) or as updated from the last FYDP by approved
program documentation … 2.) May also refer to a program having successfully achieved formal program initiation,
normally Milestone B. … the term ‘program of record’ is a budgeting term as much or more than a program
management term, indicating this phase of lifecycle – when a program has a dedicated funding line in the budget.”
https://www.dau.edu/acquipedia/pages/articledetails.aspx#!522 (visited 4 August 2020). Note, however, this term is
not used in the most significant DoD acquisition issuances, DoDD 5000.01, The Defense Acquisition System, May
12, 2003, Incorporating Change 2, August 31, 2018, and DoDI 5000.02, Operation of the Adaptive Acquisition
Framework, January 23, 2020.
15
This does not mean that all sensors are subject to intelligence oversight rules. There is an exception for programs
that are so closely integrated with a weapon system that their primary function is to provide immediate-use targeting
data. See, for instance, DoDD 5148.13 and AFI 14-404. However, that exception does not fit the RC-26B.
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modification. Finally, even the NGB applies some intelligence oversight rules to the use of the
RC-26B, including requiring a Proper Use Memorandum in most cases. 16

All of these factors lead to a conclusion that the full gamut of intelligence oversight rules
ought to apply to the RC-26B. This is why Congress and the press got engaged on this issue.
They believed individuals were being subjected to military-grade surveillance. This is why
SecDef approval under DoDM 5240.01, para 3.1.c. should have been specifically requested.

Title 32, U.S. Code, Sec. 502(f) Status

As noted in the Authorities section, Guardsmen may be in four “statuses”:

- State Active Duty

- Title 32, Sec. 502(a), Inactive Duty Training/Active Training (i.e., traditional Guard
service - one weekend a month plus two weeks)
- Title 32, Sec. 502(f), “training or other duty”
- Title 10 active service

Under Sec. 502(f)(2)(A), the training or duty may include “Support of operations or
missions undertaken by the member's unit at the request of the President or Secretary of
Defense.”

NGB/JA has interpreted the provision this way:

The purpose of FTNGD-OS [Full Time National Guard Duty for Operational Support] is
to provide the necessary skilled manpower to support existing or emerging requirements
under 32 U.S.C. §502(f). Training may occur incidental to performing FTNGD-OS. … Per

16
There is a collateral process issue here regarding Proper Use Memorandums (PUM). On the active duty side,
PUMs are used to support training of intelligence units that may gather domestic imagery to ensure they do not
collect US person information improperly. For operational DSCA missions using active duty forces presented to
USNORTHCOM via the DSCA EXORD, the proper process is to use a Domestic Imagery Legal Review (DILR) in
support of Incident Awareness and Assessment. So the active duty side uses PUMs for training and DILRs for
DSCA operations. For the Guard, CNGB policy describes how to process a PUM and the states involved here
processed PUMs and sought legal reviews. The PUMs were founded on the notion that these were training
missions. This report concludes later that 502(f) status was not authorized; that the missions were not done for
federal training; that PUMs were not a proper coordination device; and that each of the PUMs filed was founded on
an improper premise – that 502(f) status had been approved for training. Therefore, the PUMs do not have any real
effect for showing compliance with appropriate rules. They evaluate compliance with intelligence oversight rules
governing collection of foreign intelligence and counterintelligence, and training in support of that. For instance,
they address intentional and incidental collection, which are terms used in DoDM 5240.01, Proc 3, to describe the
circumstances for the lawful intentional or incidental collection of U.S. Person information in support of a foreign
intelligence or counterintelligence mission. However, those rules are never reached if the mission is conducted for
non-intelligence purposes, and the National Guard in either State Active Duty status or Title 32 status has no
authority to conduct foreign intelligence missions. The PUMs examined the wrong rule sets. This created
misplaced confidence that rules were being followed.
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 CNGBI 1302.01, members performing duty under the authority of 32 U.S.C. §502(f) will
not perform duties that are not specific requirements of the mission for which the members
were ordered to duty. If circumstances require a change of duty, Commanders must
amend/curtail the current order. Commanders may order members performing duty under
32 U.S.C. §502(f) to respond to an emergency in accordance with the Immediate Response
Authority and State law. (Ex 23:78)
…

NG personnel in 32 U.S.C. §502(f) Operational Support [OS] status may be used for DSCA
if the Governor makes a formal request for DSCA authority IAW DoDI 3025.22. If
approved by SecDef, support could occur under 32 U.S.C. §502(f)(2). The utilization of
FTNGD-OS personnel is largely limited to the underlying purpose and funding for which
they were brought onto duty. In many cases, each individual OS Soldier or Airman must
be reviewed based on their own orders, mission and funding source. Commanders must be
careful in using federally funded OS for solely State purposes. (Ex 23:79)

It is important to note that 502(f) describes a status and not a mission.

On 3 Jun 20, CNGB asked SecDef to approve Sec. 502(f) status. (Ex 8:1)
confirmed SecDef never approved the request because SecDef’s staff could not find a lawful way
to approve it. (Ex 35:14)

SecDef did not approve a federal mission, with the exception of the District of Columbia.
To the extent training was cited as the purpose of the missions with operational support as an
incidental benefit, those flights were reversing the guidance of NGB legal advisors. (Ex 34:70)
In addition, any training justification is not well-supported in the evidence. For instance, none of
the witnesses cited to any training deficiencies that would be filled by participating in these
flights, nor any training objectives they would fulfill above minimum requirements.

Finally, interpreting these missions as training with incidental operational benefit flips the
justification DoD gave to Congress when requesting the change to Sec. 502(f). 17 DoD asked
Congress to amend Sec. 502 in the 2007 National Defense Authorization Act to allow for “Total
Force Integration,” which was an effort to leverage the skills and experience of the Guard. (Ex
91:3; Ex 92:2-3) The point was to more closely align the Guard to active duty requirements and
provide more training and integration than could be achieved during weekends and two weeks in

17
However, see, Bostock v. Clayton County, Georgia, Slip Opinion No. 17–1618, U.S. Supreme Court, June 15,
2020 at 24-25 (Gorsuch, J: “unexpected applications of broad language reflect only Congress’s “presumed point [to]
produce general coverage— not to leave room for courts to recognize ad hoc exceptions”). [For certain purposes,]
this Court has sometimes consulted the understandings of the law’s drafters as some (not always conclusive)
evidence. … When a new application emerges that is both unexpected and important, they would seemingly have us
merely point out the question, refer the subject back to Congress, and decline to enforce the plain terms of the law in
the meantime. That is exactly the sort of reasoning this Court has long rejected.”
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the summer. DoD did not express an intent to have elements of the NG direct independent
missions not directly related to active duty missions. 18

A comprehensive review of the mission authorities involved showed numerous directives

in the area of support to civil authorities, with some nuanced distinctions. While authorities for
support of border missions, counterdrug operations, and natural disasters such as wildfires,
floods, hurricanes, and the like were fairly well known and regularly exercised, each has its own
specific authorities and limitations. Employment of National Guard assets in response to civil
unrest scenarios are highly unusual, distinctly different, and require special measures. Unless
tasked by SecDef in support of a federal mission, NGB serves in a coordination and oversight
role only. With respect to the RC-26B, a low density asset (only 11 aircraft exist across the
country), NGB requires notification of state-initiated missions, uses the Air National Guard
Readiness Center to aid in coordination for those states without RC-26B aircraft assigned, and
ensures compliance by submission of PUMs under NGB instructions. Each of the RC-26B
missions flown completed a PUM detailing the use and limits on imagery used in support of civil
authorities, including a reminder that no U.S. persons will be targeted. Each PUM also received
two legal reviews -- one at the state level and another at the National Guard Bureau. What is
noticeably absent in the mission generation process are formal centralized validation or approval
phases. The PUM requests are forwarded by the states to NGB J2, who staffs them through JA,
ANG 2/3/6/10, Intelligence Oversight, J33, J35, and J5. However this NGB oversight and PUM
approval does not equate to mission approval. (Ex 37:1) This, coupled with the MN TAG stating
they could use help with visualization from above, in response to CJCS and Pentagon senior
leaders asking what Minnesota needed in terms of support, may have contributed to the common
perception that these missions were directed and approved from above. (Ex 38:1) Of note, a
subsequent request from CNGB to SecDef to federally fund these missions was never granted.
(Ex 35:14) What was missing was a clear authorization from a Governor (except for California)
or SecArmy, or a clear delegee, to authorize aerial observation, with instructions on how to
conduct the mission in accordance with state law, and approval from SecDef (or delegee). A
standardized and regularly exercised process for approving the use of this rare asset in a civil
disturbance setting that could also assess not just whether such missions are legally permissible,
but consider whether they are advisable under the circumstances, could improve the current
process and avert concerns of misuse.

18
There is support for the concept that a Service Secretary, even after the fact, can direct that disaster relief by
Guardsmen may be credited for federal training and federal pay under Sec 502(a). This would allow the disaster
relief activity to be done with DoD funds without reimbursement from the State (52 Comptroller General 35, Jul 17,
1972.) However, see SecDef Memorandum, Reimbursable Activities in Support of Other Entities, 19 June 2020,
substantially limiting discretion in not requiring reimbursement for certain activities. The memorandum does not
cite 32 U.S.C. 502, but does cite “DoDD 3015.18 [probably 3025.18], Defense Support of Civil Authorities,” which
applies to the NG. In any case, the NGB requested Sec 502(f) status and it was not granted. (Ex 35:14)
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 Complexity and Vagueness in DoD-level Policy

The interface between Defense Support to Civil Authorities or state law with Intelligence
Oversight is fairly simple: DoD intelligence resources, including those in the National Guard,
can only be used for Defense Support to Civil Authorities, including support to civilian law
enforcement, if SecDef approves and the intelligence resources are used under Defense Support
to Civil Authorities rules or state law, as SecDef directs. (See DoDM 5240.01, para 3.1.c. and
DoD 5240.1-R, Procedure 12) However, reaching that conclusion and discerning what resources
are in or out of the scope of the policy can be difficult. Complexity and vagueness in DoD
policy contribute to this difficulty. This section lays out several examples.

As for the use of Intelligence assets in DSCA, DoDD 3025.18, para 4.u. says: “Use of
intelligence assets for DSCA purposes must be in accordance with Reference (o) [DoD Directive
5240.01, “DoD Intelligence Activities,” August 27, 2007, as amended].” However, DoDD
5240.01 does not use the phrase “intelligence assets” in a way that would be useful for analysis
for DSCA purposes. DoDD 5240.01, para 5.4., says, “The Secretaries of the Military
Departments with IC elements shall: 5.4.1. Organize, staff, train, and equip the intelligence
assets of the Military Departments, including CI, signals intelligence, geospatial intelligence,
measurement and signatures intelligence, and human intelligence assets, to support operational
forces, national level policy-makers, and the acquisition community.” However, it is clear that
DoDD 3025.18 is referring to all intelligence assets of DoD, including those outside the Military
Departments, so the meaning of “intelligence assets” is not discernible just by referring to DoDD
5240.01. By comparison, DoDM 5240.01 refers to Defense Intelligence Components without
any distinction among people, equipment, or processes, each of which or all together could be
considered “assets” in the meaning intended by DoDD 3025.18. So neither DoDD 3025.18 nor
DoDD 5240.01 gives clear, distinct language about what is in or out of coverage of intelligence
oversight, especially for the National Guard, although it can be discerned by looking to DoDM
5240.01. This means that reaching a proper conclusion depends on whether a reader starts with
DoDD 5240.1, DoDD 3025.18, or DoDM 5240.01, and that does not seem like a useful structure
for policy. 19

Also, DoD 5240.1-R, Procedure 12, para C12.2.2.3. says: “Specialized equipment and
facilities may be provided to Federal law enforcement authorities, and, when lives are
endangered, to State and local law enforcement authorities, provided such assistance is consistent
with, and has been approved by an official authorized pursuant to, Enclosure 3 of DoD Directive
5525.5 …” However, DoDD 5525.5 has been replaced by DoDI 3025.21, Defense Support of
Civilian Law Enforcement Agencies. In its applicability section, DoDI 3025.21 says it, “Does
not apply to: “The Defense Intelligence and Counterintelligence Components, when providing
intelligence assistance to civilian law enforcement activities in accordance with ... Procedure 12
of DoD 5240.1-R … [or to] NG personnel in State active duty or [Section 502 of ] title 32,

19
Even with the vagueness, NGB seems to have at least partially solved the problem. See CNGBI 2000.01C, para
4.d.
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U.S.C. … status.” So DoD 5240.1-R, Proc 12, points to DoDI 3025.21, which points back to
DoD 5240.1-R, Proc. 12. Again, not a useful structure for policy.

The National Guard and DSCA Generally as Compared to DSCA for Law Enforcement
Support

DoDD 3025.18, para 1.b. says it “Applies to … National Guard … personnel when under
Federal command and control. Also applies to National Guard personnel when the Secretary of
Defense determines that it is appropriate to employ National Guard personnel in title 32 … status
to fulfill a request for DSCA, the Secretary of Defense requests the concurrence of the Governors
of the affected States, and those Governors concur in the employment of National Guard
personnel in such a status.”

DoDD 3025.18 also points to DoD Instruction 3025.21, “Defense Support of Civilian
Law Enforcement Agencies,” February 27, 2013. That gives a clear indication that defense
support to civilian law enforcement agencies is a distinct subset of Defense Support to Civil
Authorities, and reading DoDD 3025.18 and DoDI 3025.21 together indicates that the National
Guard is subject to the special rules for support to civilian law enforcement in certain cases.
However, DoDI 3025.22, The Use of the National Guard for Defense Support of Civil
Authorities, para 2.b., says it applies to “The use of the National Guard for DSCA … in
accordance with [DoD Directive 3025.18, “Defense Support of Civil Authorities,” December 29,
2010], when conducted in a duty status pursuant to section 502(f) ….” However, the exclusions
in DoDI 3025.22 do not include support to civilian law enforcement or address the use of
intelligence assets, so only the closest, most arduous reading of the policies would lead to a clear
conclusion that National Guard personnel must seek SecDef approval: 1) to support civilian law
enforcement as a special form of defense support to civil authorities when in Title 32 status, or 2)
use intelligence resources for any form of defense support to civil authorities, including for
Immediate Response Authorities. The logic trail is in the rules, but it is a more difficult trail than
it needs to be, especially when these rules are only used when time is of the essence, and
American’s lives and property are at so much risk that uniformed military forces must step in.

Treatment of Immediate Response Authority

DoDD 3025.18, para. 4.i., authorizes Immediate Response Authority in response to a

request for assistance from a civilian authority. Federal Immediate Response Authority is a form
of DSCA that allows DoD officials (Federal military commanders, Heads of DoD Components,
and/or responsible DoD civilian officials) to:

• provide an immediate response to a request for assistance from a civil authority

under imminently serious conditions
• if time does not permit approval from higher authority, to temporarily employ the
resources under their control, subject to any direction provided by higher

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 headquarters, to save lives, prevent human suffering, or mitigate great property
damage within the U.S.

DoDD 3025.18 also refers a couple of times to “installations,” which indicates some
connection to an installation is important.

By comparison, DoDD 3025.18, para 4.j. recognizes the authority of State officials to
direct a State immediate response using National Guard personnel under State command and
control (including personnel in Title 32 status in accordance with State law), but National Guard
personnel will not be placed in or extended in Title 32 status to conduct State immediate
response activities.

The challenge is that the policy for federal Immediate Response Authority and state
Immediate Response Authority are not very parallel, but it appears there is some intent in the
policy that they should be, at least with respect to the use of federal equipment. The next few
paragraphs discuss this.

DoDD 3025.18 points to the DoD Dictionary for the definition of civil authorities. It
says, “Those elected and appointed officers and employees who constitute the government of the
United States, the governments of the 50 states, the District of Columbia, the Commonwealth of
Puerto Rico, the United States Virgin Islands, Guam, insular areas, and political subdivisions
thereof.” (Ex 39:39) With respect to the National Guard, many personnel are officers or
employees of their respective states, at least when in a duty status. It seems unlikely that DoD
policy would anticipate having a Guardsman in Title 32 status serve as a civil authority for the
purpose of requesting official help under state Immediate Response Authority, and then have that
person, or another National Guard person in Title 32 status, approve the state Immediate
Response and use federal equipment, without some policy indicators of limitations for support of
law enforcement or the use of intelligence resources. The problem is that the language allows
this, and some form of this happened, in essence, in some of these flights.

Also, DoDD 3025.18, para 4.i.(1), points to Reference (e) for guidance to commanders in
applying Immediate Response Authority. However, Reference (e) was cancelled by that same
DoDD (see para 1.g.). This may be an administrative matter, but is an example of the confusion
that can be generated by DoD-level policy.

Examination of Each Mission

We now turn to an examination of how the RC-26B was requested, authorized, and
performed. Following the Minnesota analysis, we will examine Arizona, California, and the
District of Columbia, individually. In each section we will explore who tasked and approved the
missions and for what purpose. We will then review the authorized parameters of each mission
and compare those to what actually occurred. Lastly, for each set of missions, we will consider
what, if anything, was executed improperly or could be improved.
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Infantry Division Headquarters (34th ID) as well as the Minnesota Joint Operations Center
(JOC). (Ex 51)

Stated Objectives

The objective of these three flights, as stated in the PUM, were:

[T]o conduct realistic training and evaluation in core Federal military mission areas, with
the incidental benefit of providing situational awareness, assessing the existence and
extent of damage, and evaluating the effectiveness of damage mitigation efforts. Airborne
platforms and sensors to be used are the RC-26B with electro-optical/infrared (EO/IR)
full motion video (FMV) sensors operated by the 115th Fighter Wing. All platforms,
sensor data and imagery products will be used in support of the IC [Incident Commander]
during this timeframe. Signals Intelligence (SIGINT), Human Intelligence (HUMINT),
and Measurement and Signatures Intelligence (MASINT) will NOT be collected or
disseminated. (Ex 50:2)

Additionally, the PUM stated:

No U.S. persons will be targeted during these missions. Any personally identifying
information unintentionally and incidentally collected about specific U.S. persons will be
purged and destroyed unless it may be lawfully retained and disseminated to other
governmental agencies that have a need for it IAW applicable laws, regulations, and
policies. (Ex 50:2)

There were no law enforcement members, military or civilian, on board the aircraft for
any of the three sorties flown by Wisconsin ANG RC-26B aircrew over Minnesota. (Ex 49:2)
The Wisconsin reviewed the request and certified the
intended use was legally sufficient, stating:

I certify that the intended collection and use of the requested information, materials, and
imagery are in support of Congressionally approved programs and are not in violation of
applicable laws. The request for imagery is not for the purpose of targeting any specific
U.S. person (USPER), nor is it inconsistent with the Constitutional and other legal rights
of U.S. persons. Applicable security regulations and guidelines, and other restrictions will
be followed. (Ex 50:3)

Additionally, the Wisconsin , similarly certified the proper purpose of

the missions and use of any images gathered, writing:

I am authorized as a trusted agent and certifying official on behalf of the requesting unit,
and I understand I am responsible for the accuracy of the information contained herein
and for the proper safeguarding of products received in response. (Ex 50:3)

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Analysis

The threshold question has to be whether or not the missions flown were authorized at the
right level. As addressed earlier, rules for the conduct of intelligence activities should apply to
the RC-26B as an ISR asset. As such, employment of the RC-26B should have been approved
by SecDef or his designee. Understanding the issue of lack of proper approval to conduct the
mission, the analysis will continue and consider whether the Minnesota collection itself violated
any standard. However, the standard to apply is driven by the level of approval obtained. As
such, in order to better understand what should have occurred, we will examine in hindsight what
should have happened and compare that with what actually happened in an effort to identify
points along the process where enhanced focus in the future can help avoid some of the identified
missteps.

Interviews and documents examined indicated the mission focus of the Minnesota flights
was to provide support to National Guard members on the ground in Minnesota. (Ex 50:1) This
varies slightly with the stated intent and execution in other states that had a more direct
connection to law enforcement, which will be discussed later. (Ex 45:2) Witnesses interviewed,
including aircrew and program managers, appeared to have a good understanding of the left and
right limits on collection, focusing efforts on federal property sites, and looking for hazards to
that property and the National Guard troops present on the ground. It should be noted that this is
similar, yet far different from the routine domestic missions the planners and crew were more
familiar with (natural disasters, floods, wildfires, hurricanes, etc.) and far removed from the
overseas mission set. The inherent complexity in employing this aircraft domestically for Civil
Disturbance Operations is that while rightfully overseeing federal property, buildings,
monuments, and intersections during mass protest demonstrations, human beings are also
present. As such, it is difficult, if not impossible, to filter out people which are not by
themselves the intent of collection from places of interest that are. It is also problematic from a
practical application standpoint to have members look for large crowds and potential threats to
safety while at the same time require them to not look at individuals. Herein lies the inevitable
dichotomy between valid overwatch and force protection on the one hand, and potential
unwanted collection of personal information on the other.

In evaluating the proper employment of RC-26B air assets over Minnesota, as will
likewise be examined for flights over Arizona, California, and Washington DC, the facts will be
analyzed through three unequal lenses. The first and most important being Intelligence
Oversight and whether the RC-26B aircraft flying these missions violated any standard with
respect to collection of personal information. This is understandably the first and foremost
concern of Congress, the media, and citizens and is the primary focus of this investigation.
Secondarily, though likely more of interest to internal audiences, is a discussion of the
underlying mission approval process, recognizing the unique circumstances of the protests, how
rapidly events unfolded, and the relative inexperience, collectively, in responding to such a
crisis. Finally, although not the topic of headlines or letters of concern, is a discussion of
ensuring members responding to the call for such taskings were in the proper duty/pay status.
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 Intelligence Oversight

No information on individual U.S. persons was collected during RC-26B flights over
Minnesota. Eleven witnesses from the NGB, Wisconsin, and Minnesota were interviewed.
Mission data and electronic products were analyzed for the presence of information on individual
citizens. Overall, the evidence collected and analyzed showed RC-26B aircraft flew in support
of National Guard elements by providing situational awareness scans from the air. Such visuals
of federal property included major crowd movements or fires near government buildings,
property, or roads, giving officials on the ground near real time awareness, without collecting
information on or identifying individuals. There is no evidence individuals or specific
organizations were targeted, followed, or identified. That said, RC-26B sensors, both electro-
optical and infrared, have enough resolution to show distinct architectural features of buildings
and allow identification of a geographic place. They also have enough resolution to show basic
features of vehicles that may allow a trained observer to identify such things as make and model,
in some cases, but not to read license plates.

Another sample IR image from the Minnesota flights appears here:

(Ex 42:2)

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 A sample Electro-Optical (EO) daytime image from the Minnesota flights appears here:

(Ex 42:3)

Given the information gained from aircrew interviews, the post-mission Mission Reports,
and the images provided, it is clear that no personal information was collected.

The PUM was not the right tool to use, but it properly set the parameters and intent
beforehand for "situational awareness" and damage assessment in support of the Incident
Commander and plainly states "No U.S. persons will be targeted during these missions." (Ex 50)
While the MISREP for the first mission indicates they were to gain situational awareness on a
large crowd gathering, no identifying details beyond that were noted before moving on to similar
scans of the Governor's quarters and historic locations around the city. The crew reported
conducting "a defensive scan" looking for groups massing greater than 10 "for the safety of
forward deployed Guardsmen or destruction of property." (Ex 44) At one point on the 1 - 2 Jun
flight, DAGGR 04 observed "human figures" climbing on top of a building using a car pulled up
to the side of a lower ledge, however no destructive activity was observed and there was no
further reporting on the identity or individual characteristics of the human figures.

Other Minnesota flights reported scanning building rooftops looking for any security
concerns that would affect the safety of protesters, law enforcement personnel, or military
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hurricanes. One of the takeaways from this investigation has to be a recognition in the future
that civil unrest response is unlike forest fires, floods, hurricanes, or any other natural disaster.
With the exception of lost persons (wanting to be identified and rescued) this issue of
intelligence oversight is not a concern as it is with respect to civil unrest. It is this enhanced
sensitivity that led to all RC-26B missions being halted by . (Ex
35:6)

stated the J3/Operations function has been hesitant to validate or approve IAA
missions. He has offered a suggestion on a revised process within NGB to validate IAA
missions that would include creating an IAA multi-functional fusion cell to review and formally
validate IAA missions. (Ex 30:48)

For Civil Disturbance Operations, the mission approval process should involve
Governors, or another civilian official directing the TAGs to conduct civil disturbance
operations, then TAGs approving the need for IAA, and then State J3s validating requests placed
in JIEE to NGB. NGB J3 could serve as the channel of communications for the states and
forward requests to the appropriate DoD official for execution. If ISR resources (people,
equipment, or processes) are used, the State J2s should engage NGB J2 for help in making
requests for DoDM 5240.01 approvals. State legal officials, possibly including state NG judge
advocates, should review the proposed action for compliance with state law. Civil disturbance
needs a more deliberate, coordinated validation approach, perhaps via the previously mentioned
fusion cell.

Reflecting now on the appropriateness of RC-26B flights, and whether he saw any
difference in a Civil Disturbance Operation versus a hurricane, versus a flood,
responded:

If you asked me back in the first part of June, the end of May, I'd say there is no
difference. And the reason I say that is because we follow the same processes and
procedures, and we ensure that the, that we're legally doing what we're supposed to be
doing. You ask me that now, and I think, yes, there's an enhanced sensitivity to doing
Civil Disturbance Operations inside the United States. (Ex 30:40-41)

Interestingly, pointed out, and the investigating team concurs, the language
NGB J2 is required to use in the PUMs should be flipped. Instead of first stating the IAA
mission is a training mission with the incidental benefit of providing an operational need, in
truth, these support missions are not pre-planned and are used primarily for the operational need
with a secondary training benefit. (Ex 30:52-53)

There were no SIGINT capabilities on the RC-26B aircraft. There was no personal
information collected on these missions. Normally, the full motion video is not retained by the
NG, but in this case, since NGB J2 anticipated follow-on questions, imagery was saved by NGB
J2 for the DC and MN missions and it was provided to the investigating team.

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2 Jun 20 An AZ ANG RC-26B crew conducted one observation flight. Call Sign
Stash 22, from 214 ATKG, Tucson, took off at 1510 MST on 2 Jun 20. The
aircraft stopped to onboard two Phoenix Police Dept officers at Sky Harbor
Airport in Phoenix, AZ at 1550L, who directed the aircraft throughout the flight
from 1715-2045L. The aircraft observed multiple groups ranging in size from
150-500, all of which appeared peaceful. (Ex 55; Ex 58)

Governor Ducey's public statements on the matter included:

At the request of local leaders and in coordination with state and local law enforcement,
I’m issuing a statewide Declaration of Emergency and curfew starting at 8:00 p.m.
tonight and effective for one week. This gives law enforcement an additional tool to
prevent the lawlessness we’ve seen here and in cities nationwide. Police will be equipped
to make arrests of individuals who are planning to riot, loot or cause damage and unrest.
Today’s declaration also authorizes an expanded National Guard mobilization to protect
life and property throughout the state. Our office will continue to communicate with local
law enforcement to provide whatever resources we can. (Ex 56:1)

Additionally, the Governor authorized the to

"mobilize and call to activate [sic] all or such part of the Arizona National Guard as is
determined necessary to assist in the protection of life and property throughout the State." (Ex
56:5)

Stated Objectives

According to the Arizona PUM request dated 31 May 20, protests were spreading
throughout the U.S. and were assessed to have the potential to turn violent, resulting in
significant property damage and possible injury or death to citizens. The PUM covered Title 32
training missions flown by the AZNG over areas of the State of Arizona affected by civil
disturbances from 31 May 2020 through 30 June 2020. The stated purpose of the missions was
"to conduct realistic training and evaluation in core Federal military mission areas with the
incidental benefit of providing situational awareness, assessing the existence and extent of
damage and evaluating the effectiveness of damage mitigation efforts." (Ex 59:2) Named areas
of interest were to be selected by the supported Incident Commander. The RC-26B from the
162nd Fighter Wing in Tucson was specifically named as the platform, along with its capability to
provide forward looking infrared (FLIR) and optical/infrared (EO/IR) full motion video. The
platform, sensor data, and imagery products were to be used in a support role of local, state, and
federal officials. It was expressly written that Signals Intelligence (SIGINT), Human
Intelligence (HUMINT), and Measurement and Signatures Intelligence (MASINT) would not be
collected or disseminated. (Ex 59:2)

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 The PUM also established no U.S. persons would be targeted during these missions and
stated any personally identifying information unintentionally and incidentally collected about
specific U.S. persons would be purged and destroyed unless lawfully retained and disseminated.
Sensor data and images resulting from these missions were to be processed by AZNG analysts
and UPAD 26 units designated by NGB J2 on unclassified systems. Raw images, analytical data,
working copies, and finished products would be available for use by the AZNG, US Northern
Command (NORTHCOM) (if necessary 27), the National Guard Bureau, local and state first
responders, Arizona Emergency Management Agency, and Incident Command Centers for the
purpose of damage assessments, Defense Support to Civil Authorities (DSCA) operations, and
future support planning. All imagery/products were to be reviewed at the end of response efforts
and then quarterly thereafter if retained, and shredded or deleted when no longer required. All
AZNG personnel involved in the handling of such images and products were subject to
intelligence oversight (IO) and received IO training. (Ex 59:3)

is the , which is a standing task

force responsible for the Arizona NG Civil Support Team, Cyber Operations, Counterdrug, and
the State Partnership Program with Kazakhstan. He stated a PUM for the RC-26B mission was
approved by NGB for the mission and he believed the mission was executed properly. However,
he did not know who authorized the mission -- only that the PUM was approved.
related the mission was in support of the Multi-Agency Coordination Center (MACC) located in
Phoenix. The MACC is a fusion center with various first responder agencies participating. (Ex
60)

A legal sufficiency review was contained within the PUM and expressed no legal
concerns. (Ex 59:3) Among the Concept of Operations (CONOPS) mission briefing materials
was the following slide depicting areas of interest:

26
Unclassified Processing, Analysis, and Dissemination.
27
Use of the RC-26B to support NORTHCOM would typically come about after a Presidential disaster declaration,
with FEMA as a lead federal agency, with the flight operating under DSCA rules. This would not be the case with
these RC-26B sorties having a role in supporting law enforcement.
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identifying information was unintentionally or incidentally collected, it would have been purged
and destroyed unless lawfully retained and disseminated. There was no evidence any personal
information was collected during the Arizona flight. While there are no images to examine, like
were available for the Minnesota and Washington DC flights, witness testimony nevertheless
helped describe in detail how the mission was conducted, and allayed concerns about collection
of personal information.

the for the AZNG, explained the imagery

downlink was planned to be transmitted to the PPD to support their situational awareness, to
effectively deter violence, and to assist in the safety of peaceful protests. However, the downlink
was not successful due to software incompatibility. noted the RC-26B civil
disturbance mission differed from the South West Border (SWB) and Counterdrug (CD)
missions in that the SWB and CD missions focus on individuals whereas the civil disturbance
mission focused upon groups of people.

The Arizona MISREP consistently noted the aircraft observed multiple groups ranging in
size from 150-500 personnel and that the majority of the groups observed, which were located
throughout the downtown Phoenix area, all appeared to be peaceful. Despite the previously noted
problematic wording in the CONOPS briefing, there is no evidence the aircraft ever attempted to
deter any planned or unplanned demonstrations or otherwise lawful protests.

Mission Approval Process

It is understandable and there is support in the record that this was a mission set the
AZNG was not familiar with. noted this was the first time in his memory dating
back 29 years that the Arizona National Guard has been involved in any Civil Disturbance
Operations. Having acknowledged the rarity of the situation, it is somewhat surprising that
the , knew a PUM was approved by NGB
for the mission and believed "it was executed properly," but did not know who authorized the
mission--only that the PUM was approved. This is another example that underscores the
prevalence of misunderstandings with respect to civil disturbance. Like Minnesota, members of
the AZNG appear to have held the belief that PUM approval in some way amounted to mission
approval. Similarly, knew the authorized the
flight, but he did not know the process for mission approval for civil disturbance or other
domestic operations support missions. Again, this unfamiliarity is not unique to Arizona but
appears to be a common theme among the states with respect to underling procedural errors
stemming from a failure to fully appreciate the unique nature of civil disturbance support.

Status of Personnel

stated the aircrew supporting the 2 Jun 20 mission were on Operation

Guardian Shield (SWB) orders. He related that he had asked if it was acceptable to
fly this mission on SWB orders or whether the orders should be amended, and he was told the
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and compare them with the standards in an effort to identify areas where potential changes can
help avoid missteps in the future.

Intelligence Oversight

Interviews and documents examined indicated the mission focus of the California flight
was providing situational awareness, assessing the existence and extent of damage, and to
evaluate the effectiveness of damage mitigation efforts. Despite the fact training was listed as
the primary purpose, the evidence indicates that while there may have been some secondary
training benefit, the primary purpose still appears predominantly to be support to law
enforcement in response to the state's emergency response activities. While this creates a
disconnect in terms of personnel being in the right status, which will be subsequently addressed,
this fact by itself does not appear to raise concerns with respect to intelligence oversight. The
California PUM stated:

No U.S. persons will be targeted during these missions. Any personally identifying
information unintentionally and incidentally collected about specific U.S. persons will be
purged and destroyed unless it may be lawfully retained and disseminated to other
governmental agencies that have a need for it IAW applicable laws, regulations, and
policies. (Ex 65:2)

Somewhat concerning is the provision in the PUM that:

Sensor data and imagery resulting from these collection efforts will be processed and
exploited by the CANG on unclassified systems and networks, including but not limited
to the JFHQ-CA-J2, Joint Operations Center, 234th Intelligence Squadron, 163rd Attack
Wing, and U-PAD units designated by the NGB J2. (emphasis added) (Ex 65:2-3)

While the term "exploitation" has a negative connotation in everyday use, it is an

intelligence career field term of art. 29 As such, this is another example of holdover or crossover
from the ISR/intelligence world to civil disturbance response.

Also of potential concern was language used in the California Governor's Office of
Emergency Management request to the California National Guard for aerial assistance. The
request stated in relevant part:
Request for CNG aerial IAA platform to assist with information of groups forming in the
west end of El Dorado County. (Ex 68:1)

29
The DoD Dictionary of Military and Associated Terms, June 2020 defines exploitation as: 1. Taking full
advantage of success in military operations, following up initial gains, and making permanent the temporary effects
already created. 2. Taking full advantage of any information that has come to hand for tactical, operational, or
strategic purposes. 3. An offensive operation that usually follows a successful attack and is designed to disorganize
the enemy in depth. (JP 2-01.3)
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assessing the existence and extent of damage, and to evaluate the effectiveness of damage
mitigation efforts." (Ex CA PUM) While this language triggers federal funding under a Title 32
training status, the priority appears to be in reverse order. The primary purpose here was more
accurately providing situational awareness, assessing the existence and extent of damage, and to
evaluate the effectiveness of damage mitigation efforts, with an incidental training benefit. As
such, personnel likely should have been in State Active Duty status.

Likewise, the RC-26B mission was flown by the California National Guard in response to
the request for support from the California Office of Emergency Services. This further supports
the notion that members would ideally have been in State Active Duty status and in turn, should
have been paid by state funds.

While there do not appear to have been any intelligence oversight concerns or incidents
where personal information was collected on any individual, it is not entirely clear what UPAD
intelligence personnel were poised to do if images had been received. While intelligence
personnel receive annual intelligence oversight training, the concept of civil disturbance is a
unique support mission that could use specialized training to ensure the lines between federal
mission intelligence practices are not blurred when it comes to domestic support roles. In terms
of process and status, ideally, the California Governor would have specifically requested SecDef
approval to use the RC-26B for defense support to civilian law enforcement, citing DoDM
5240.01, para 3.1.a.(3) and DoD 5240.1-R, Procedure 12 as the basis. Since California had RC-
26B aircraft resident in the state, the Governor could have ordered the California National Guard
to conduct the flight and the mission would have been flown in State Active Duty status. In a
coordination and oversight role, the NGB and ANGRC staffs would have supported coordination
and rapid staffing. Beforehand, the California RC-26B crews would have been advised that they
were no longer operating under intel oversight guidelines, but rather, under California law.

Flights Over Washington, DC

We now turn to the two RC-26B flights over Washington, DC. The flights in this
location were particularly unique due to the governmental structure of the city (i.e., no
Governor).

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2 Jun 20 #1 of 2 flights. RC-26B Tail # 92-0373, Call Sign ANVIL 01, operated by
aircrew from the 130th AW, WV ANG departed Clarksburg, WV at 2002 EDT,
flying to Washington DC, then returning to Clarksburg at 0100L on 3 Jun 20.
Flight over DC was from 2038 to 0011L. Their pre-planned named areas of
interest (NAI) included the Washington, Lincoln, WWII, Vietnam, Jefferson,
and Korean Memorials, Lafayette Square, St John’s Cathedral, and possible large
groups of people. The aircrew reported no activity around the memorials, with
larger numbers of people around Lafayette Square. The 193rd Air Support
Operations Squadron (ASOS) of the Pennsylvania ANG provided ground
communications. (Ex 76; Ex 7:1)
3 Jun 20 #2 of 2 Flights. RC-26B Tail # 92-0373, Call Sign ANVIL 01, operated by
aircrew from the 130th AW, WV ANG, departed Clarksburg, WV on 3 Jun 20 at
2008 EDT, flying to Washington DC and returning to Clarksburg, WV at 0048L
on 4 Jun 20. Flight over DC was from 2045 to 2355L. The NAIs were the same
as the previous flight with the addition of Capitol Hill and the DCNG Mobile
Command Post. The crew reported no significant activity at the memorials. The
largest group of people were in the Lafayette Park area. (Ex 77)
3 Jun 20 MS ANG RC-26B returned to its home station in Meridian, MS from their
tasked Southwest Border Mission. They terminated their Southwest Border
Mission one day earlier than planned to support a potential DC IAA flight on 4
Jun 20. (Ex 7:5)
5 Jun 20 SecArmy ordered the DCNG to cease RC-26B flights over DC. (Ex 80:1)
5 Jun 20 ordered the RC-26B flights to cease their support of
Civil Disturbance Operations. (Ex 7:5)
8 June 20 signed a legal
review stating no legal objections to both the expedited and written PUM
Requests from West Virginia supporting the District of Columbia Civil
Disturbance Response. (Ex 78)

The National Guard response in the District of Columbia (DC) was very different from
that provided in the other three states, with the primary reason being the governmental structure
of Washington DC. Pursuant to Sec. 49-409 of the DC Code, the President is the Commander in
Chief of the DCNG when in its militia status. Under DC Code Sec. 49-103, the President may
activate the DCNG to assist with domestic emergencies when additional resources are needed.
As a result, there is no State Active Duty status available for members of the DCNG when
activated for domestic missions. Therefore, DCNG members are always in Title 32 federal pay
status during scheduled training and when activated for domestic responses in Washington, DC.
(Ex 35:2; Ex 79)

Over the years, the President (POTUS) has largely delegated his Commander-in Chief
duties of the DCNG to the SecDef. In turn, the SecDef has delegated much of the day to day
peacetime responsibilities of the DC Army National Guard to the Secretary of the Army

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 (Ex 87)

Analysis

Once again, the top question is whether or not the mission was authorized at the right
level. Intelligence Oversight rules should apply to the RC-26B as an ISR asset. As such, the
employment of the RC-26B should have been approved by SecDef or his designee. Having
noted this threshold issue, the analysis will continue and consider whether the Washington, DC
flights themselves violated any standard. We will examine the facts surrounding the flight and
compare them with the standards in an effort to identify areas where potential changes can help
avoid missteps in the future.

Intelligence Oversight

As addressed earlier, rules for the conduct of intelligence activities should apply to the
RC-26B as an ISR asset. As such, the employment of the RC-26B should have been approved
by SecDef or his designee. Understanding the issue of lack of proper approval to conduct the
mission, the analysis will continue and consider whether the collection itself violated any
standard. However, the standard to apply is driven by the level of approval obtained. As such,
in order to better understand what should have occurred, we will examine in hindsight what
should have happened and compare that with what actually happened in an effort to identify

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points along the process where enhanced focus in the future can help avoid some of the identified
missteps.

Interviews and documents indicate the mission focus of the WV ANG RC-26B flights
over Washington, DC was to provide situational awareness, assess the existence and extent of
damage, and to assist in public safety. Despite the fact training was listed as the primary
purpose, the evidence indicates that while there may have been some secondary training benefit,
the primary purpose still appears predominantly to be support to the DCNG in their support to
law enforcement agencies. While this creates a disconnect in terms of personnel being in the
right status, which will be subsequently addressed, this fact by itself does not appear to raise
concerns with respect to intelligence oversight. The West Virginia PUM stated:

No U.S. persons will be targeted during these missions. Any personally identifying
information unintentionally and incidentally collected about specific U.S. persons will be
purged and destroyed unless it may be lawfully retained and disseminated to other
governmental agencies that have a need for it IAW applicable laws, regulations, and
policies. (Ex 82:2-3)

Somewhat concerning is the provision in the PUM that:

Sensor data and imagery resulting from these collection efforts will be processed and
exploited by JFHQ WVNG and DCNG personnel and U-PAD units designated by
NGB J2 using unclassified systems. Raw imagery, analytic data, working copies and
finished products may be disseminated to and used by the DCNG, WVNG, local and
state first responders, the DC Homeland Security and Emergency Management
Agency (DC HSEMA), law enforcement, National Guard Bureau (NGB), and U.S.
Northern Command (USNORTHCOM) for the purpose of damage assessment, for
the purpose of damage assessment, domestic operations, and future support planning.
Products will be disseminated in hard copy and electronic format via approved and
secure dissemination channels, specifically the Domestic Operations (DOMOPs)
Awareness Assessment and Response Tool (DAART) server. All imagery will be
reviewed at the end of any response efforts. Some imagery and sensor data will be
retained for training, planning, or historical purposes; all other imagery and sensor
data will be purged, deleted or destroyed at the end of any response effort. Any
products retained will be reviewed quarterly and purged, deleted, or destroyed when
no longer required. All WVNG personnel involved in collecting, processing and
exploiting, analyzing or disseminating imagery and products are subject to intelligence
oversight (IO) and have received IO training. (Ex 82:2-3)

The concern over the term exploitation was discussed in the California Intelligence
Oversight section above. The primary concern with this term is it has application to foreign
intelligence rather than being sensitive to domestic operations. Another potential area of concern
is the mention of UPAD. UPADs are designed to view images provided by aerial platforms and
provide a second set of eyes to assist in identifying hazards, predict progression of wildfires, and
assist with search and rescue missions. National Guard Geospatial Analysts volunteer to support
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domestic operations when requested. The analysts are able to accomplish career and readiness
training requirements when operating the UPAD. (Ex 97)

Interviews revealed that if an analyst were to see a hazard or issue of safety on the aerial
images provided to them, they have the capability to either call or text an end user to mitigate the
hazard or needed rescue. (Ex 85:2-3; Ex 88:1) The past uses of UPADs for floods, wildfires, and
search and rescue missions have proven an effective means for Geospatial Analysts to achieve
training and provide needed awareness to first responders and senior leaders, and approval to use
UPAD should be sought to use it for National Guard Civil Disturbance Operations.

That said, it is clear the AR UPAD 32 is an intelligence resource and subject to DoDM
5240.01 and the need for SecDef approval to conduct non-intelligence missions. They operate
for the purpose of training for their Title 10 mission and they are assigned to an ISR Group. (Ex
88:1). 33

Finally, the latter part of the WVNG PUM Request demonstrates prudent protection
against improper use of the images gained from the RC-26B flights. In short, the National Guard
provides the images to their supported customers and does not maintain copies of the images,
except for “training, planning, or historical purposes.” Of the limited number of images retained
by the National Guard, they are required to be reviewed quarterly and then purged when no
longer needed. (Ex 85:2-3) Every aircrew and intelligence professional spoken to for this
investigation was cognizant of this requirement and stated they were diligent about purging the
unneeded images promptly.

Mission Approval Process

The mission approval process was even more complex and convoluted than for the three
states in this report. Authorizations for activating the DCNG for domestic support missions are
to be approved at high levels of the federal government. SecDef was within his authority to
verbally authorize the DCNG and 11 other National Guard States to operate as he directed.
When he communicated this order to the CNGB, he provided some general parameters of the
support he expected the National Guard to perform in this effort. Neither aerial observation nor
IAA were mentioned or suggested during this communication. (Ex 35:6) Further complicating
this matter is that SecArmy did not request this capability, nor did anyone in the senior ranks of
the DCNG request this capability. (Ex 80:1; Ex 71:1; Ex 81:1) The closest communication

32
SAF/IG chartered this investigation to look into use of the RC-26B during recent protest activities. Because the
use of the AR UPAD is so closely connected to the use of the RC-26B over Washington, DC, the investigating team
concluded it was in the scope of the investigation.
33
The UPADs are not “programs of record.” They operate with commercial off the shelf computers with
commercially procured internet to allow connectivity with supported local, state, and federal agencies, and their
computer equipment was purchased with NGREA funding. (Ex 88:1) The ROI has previously determined that these
factors do not exclude the UPAD from DoDM 5240.01 and the need for SecDef approval to conduct non-
intelligence missions.
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two local law enforcement officers. Efforts to send images from the aircraft to the ground met
with varying success in different locations. Recording of the images also varied by location.

Policy interpretations by the National Guard Bureau led to a mistaken belief that approval
from the Secretary of Defense for use of the RC-26B was not required for purposes of the rules
applicable to the conduct of intelligence activities. Other interpretations led to a mistaken belief
that 32 USC § 502(f) status was appropriate for RC-26B aircrew and support personnel.
Personnel involved in planning and executing these missions frequently told the investigating
team they recognized missions of this sort fall under special authorities, but there is a lack of
understanding and knowledge of the applicability of the various governing instructions.

Lastly, the investigation determined vagueness in DoD policy substantially contributed to

the National Guard Bureau’s conclusions that the RC-26B is not an intelligence resource.
Complexity and vagueness in DoD policy on Immediate Response Authorities also led to the
likely misuse of those authorities.

VI. RECOMMENDATIONS

1. NGB should review CNGBI 2000.01C and CNGMB 2000.01A in light of this
report. They should propose appropriate adjustments to rules on the use of intelligence
assets in DSCA generally and defense support to civilian law enforcement specifically,
and they should clarify how to transition from intelligence authorities to authorities
applicable to other missions. NGB should seek the views of appropriate offices in
USD(P) and DoD SIOO in creating these adjustments.

2. NGB should review its procedures for missions under 32 U.S.C. 502(f) to
ensure it has processes to confirm that use of 502(f) status is proper for the mission at
hand, that the proper person has approved the use of 502(f) for that mission and for the
Guard personnel on it, and that information on those procedures is provided to the field.

3. NGB should create training to provide to the states to address confusion

regarding the applicability of various authorities and their application to domestic
operation missions.

4. NGB and USD(P) should collaborate to clarify policies applicable to NG

support to civilian law enforcement, particularly who can approve support under
Immediate Response Authority.

5. USD(I&S), USD(P), and DoD SIOO, in consultation with NGB as appropriate,

should clarify the DoD issuances on the interface between the rules applicable to the
conduct of intelligence activities and Defense Support to Civil Authorities, especially in

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the context of support to civilian law enforcement, Immediate Response Authority, and
state Immediate Response Authority.

6. United States Property and Fiscal Officers (USPFOs) in Minnesota,

Wisconsin, Arizona, California, West Virginia, Arkansas, and Mississippi should review
the use of federal funds for the RC-26B flights and supporting downlink and analysis.
USPFOs should consider reimbursement, as appropriate.

I have reviewed this Report of Investigation conducted by the SAF/IGS investigating

team and I concur with its findings.

SAMI D. SAID
Lieutenant General, USAF
The Inspector General

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