EXECUTIVESUMMARY
ThismemorandumcommunicatesthefindingsofourinvestigationofGPO’spublicationandInternetpostingofHouseDocument111‐37(HD111‐37),whichcontainsa266‐pagelistofU.S.civiliannuclearsites,locations,facilities,andactivitiesdeclaredtotheInternationalAtomicEnergyAgency(IAEA)bythePresidentoftheUnitedStates.MediareportsindicatedthatHD111‐37was“mistakenlyreleasedonline...bytheGovernmentPrintingOffice.”
OurinvestigationfoundnowrongdoingonthepartofGPOoritsemployees.GPO’scustomeragencyisresponsibleforidentifyingwhetheradocumentisofasensitiveorotherwiserestrictednaturewhenrequestingdocumentpublishing.TheExecutiveCommunicationsClerkoftheU.S.HouseofRepresentativestransmittedHD111‐37toGPOforpublicationonMay6,2009,withoutrestrictionorspecialhandlingrequirements.Asdirectedbyitscustomer,GPOprintedHD111‐37onMay6andpostedthedocumentundernormalproceduresontheGPOAccessWebsitewithinadayofprinting.WhentheClerknotifiedGPOofthesensitivityofthedocumentonJune2,2009,itwaspromptlyremovedfromGPOAccess.
AdditionalcontrolsatGPOmayhelpidentifyandpreventinthefutureanunwanteddisclosureofsensitiveinformation.AllFederalagenciessharetheresponsibilityofpreventingtheinappropriatedisclosureofsensitivedocuments.Accordingly,asfurtherexplainedbelow,wemakefourrecommendationstoGPOmanagementdesignedtohelpimproveGPO’sprocessforhandlingandpublishingsensitiveinformation.
August3,2009
ManagementImplicationReportPublicationofHouseDocument11137onU.S.NuclearSites
J.AnthonyOgden,InspectorGeneral
HonorableRobertTapella,PublicPrinteroftheUnitedStates
MIRRe:PublicationofHD111‐37August3,2009Page2of7BACKGROUND
OnJune2,2009,multiplemediaoutletsbeganreportingthatthegovernment“inadvertently”and“mistakenly”postedontheGPOAccessWebsite1HD111‐37,includinganattachedlistofU.S.nuclearsitesthat“providedaone‐stepguideforanyonewantingdetailsaboutsuchsensitiveinformation.”Thelist,eachpageofwhichwasmarked“HighlyConfidentialSafeguardsSensitive”(withtheexceptionofpagesthatdetailedadditionalinformationlikesitemaps),wasreportedlydiscoveredpostedonwww.gpoaccess.govbyagroupthatfocusesongovernmentsecrecy.Obamaadministrationofficialsstatedthatthedocumentdidnotcontainclassifiedmaterialaboutnuclearweapons,butEnergySecretaryStevenChusaid"asnafu"ledtotheonlineposting.
GPOspokesperson,GarySomerset,wasquotedassayingthatGPOhad“produced”thedocumentundernormaloperatingprocedures,andthat“[u]ponbeinginformedaboutpotentialsensitivenatureoftheattachmentinthisdocument,thePublicPrinteroftheUnitedStatesremoveditfromGPO’sWebsitependingfurtherreview.AfterconsultingwiththeWhiteHouseandCongress,itwasdeterminedthatthedocument,includingthesensitiveattachment,shouldbepermanentlyremovedfromtheWebsite."
ThismatterfirstcametotheOIG’sattentionviatheJune3,2009,GPODailyNewse‐mailbriefingthatfeaturedanarticlefromTheNewYorkTimesentitledU.S.AccidentallyReleasesListofNuclearSites.2By10:00amonJune3,theOIGhadinitiatedaninvestigationtodetermineGPO’sresponsibility,ifany,forpossiblesecuritylapsesorotherviolationsthatmayhaveledtothedisclosureofHD111‐37.
AtorrentofmediaactivityensuedthroughoutthatdayandwasbolsteredbyarequestfromHouseSpeakerNancyPelosiforareviewbytheGovernmentAccountabilityOffice(GAO).Inresponsetothisannouncement,bylettersdatedJune4,2009,theOIGinformedSpeakerPelosiaswellasSenatorCharlesSchumerandRepresentativeRobertBrady(asChairmanandViceChairmanoftheJointCommitteeonPrinting)oftheOIGinvestigation.WehavesincemetwithrepresentativesfromGAOandwillsharetheresultsofourinvestigationwiththem.Duetoourjurisdictionallimitation,theOIG
1 GPOAccess(www.gpoaccess.gov)isaGPOWebsiteservicethatprovidesfreeaccesstoawealthofimportantfederalelectronicinformationproducts.TheinformationprovidedontheGPOAccessWebsiteistheofficial,publishedversionandtheinformationretrievedfromGPOAccesscanbeusedwithoutrestriction,unlessspecificallynoted.GPOAccesswasauthorizedunderPublicLaw103‐40,knownastheGovernmentPrintingOfficeElectronicInformationEnhancementActof1993,codifiedat44U.S.C.§4101.2 http://www.nytimes.com/2009/06/03/us/03nuke.html.
MIRRe:PublicationofHD111‐37August3,2009Page3of7investigationfocusedsolelyontherolesandresponsibilitiesofGPO.TheGAOinvestigationwilladdressalloftheentitiesinvolvedinthepreparationanddisseminationofHD111‐37andotherinterestedparties.
RESULTSOFINVESTIGATION
TheOIGinvestigativestaffinterviewedemployeesatGPOinvolvedinprocessing,printing,andpostingHD111‐37.WeinterviewedemployeesandsupervisorsinGPO’sCongressionalPublishingServices(CPS),whoreceivedtherequesttoprintHD111‐37,andthoseinthePre‐PressDivisionwhomanagedandperformedtheprocessoftypesetting,scanning,andproofreadingHD111‐37.Wealsoreviewedthedocumentrequest,relatedGPOtrackingdocuments,ande‐mailsprovidedbythoseinterviewed.
A. RequestforPrintingHD11137HD111‐37wasprocessedforprintingandpostingontheGPOAccessWebsiteundernormalproceduresasrequestedbytheExecutiveCommunicationsClerkoftheHouseofRepresentatives(theClerk)withnospecialhandlinginstructions.GPOJacketNo.79‐011,whichtrackedtheHD111‐37workprocess,showsthedocumentrequestwasreceivedbyGPO’sCPSonMay6,2009,andwasdueforcompletionthenextmorningby7:00a.m.(AttachmentA).Therequestwasdocumentedasthreeparts:apresidentialtransmittal(orboilerplate),apresidentialletter,anda266‐pagecameracopymanuscriptofthenuclearsiteslist.
Thepresidentialtransmittalisidentifiedasthe37thDocumentofthe111thCongress,HouseofRepresentatives,andtitled“TheListofSites,Locations,Facilities,andActivitiesDeclaredtoTheInternationalAtomicEnergyAgency”(AttachmentB).ThetransmittaldeclaredamessagefromthePresidentoftheUnitedStatesaboutthelistandorderedaccompanyingpapersreferredtotheCommitteeonForeignAffairsand“tobeprinted.”
ThepresidentialletterstatesthatthelistconstitutedareporttotheIAEAasrequiredbysection271ofPublicLaw109‐401andalsostates“theIAEAclassificationoftheencloseddeclarationwas‘HighlyConfidentialSafeguardsSensitive,’however,theUnitedStatesregardsthisinformationas“SensitivebutUnclassified”(AttachmentC).Thepresidentialletterfurtherstatesthat,“underPublicLaw109‐401,informationreportedto,orotherwiseacquiredby,theUnitedStatesGovernmentunderthistitleorundertheU.S.–IAEAAdditionalProtocolshallbeexemptfromdisclosureundersection552oftitle5,UnitedStatesCode.”(Emphasisadded.)
MIRRe:PublicationofHD111‐37August3,2009Page4of7B. GPOPublishingProcess
HD111‐37wasprocessedundernormalproceduresthroughGPOProductionControl,typesetting,digitalpre‐press(scanning),proofing,andthentothePlateRoom,PressRoom,Bindery,GPOAccess,andshipping.TheHD111‐37JacketconfirmsthisprocesswascompletedonMay6,2009.Thepresidentialtransmittalandpresidentialletterwerebothtypeset(keyed)andproofread,whilethe266‐pagemanuscriptwasprocessedbydigitalscanning.Thepresidentialletter,containingthelanguagecitedabove,waskeyed,proofread,revised,andproofedagain,toinsureitwasidenticaltotherequestpackage.
GPOproductionemployeesarenotrequiredtoreadandproofformeaning,butmerelytocheckforpropercharactersandformat.However,oneGPOmanagerdescribedthetypesetandproofingprocessofproductionasonepossibleinternalcontrolwithinGPOforidentifyingconcernsaboutsensitivecontent,notingthatproofreadingisan“intelligentprocess.”
Althoughthescanned266‐pagemanuscriptcontainsthedesignation“HighlyConfidentialSafeguardsSensitive”onnearlyeverypage,noGPOemployeesraisedanyconcernsduringtheprocessingofthedocument.Witnessesstatedthatthosewhoreviewedthescannedcopywouldlookforpagenumbersandformat,withoutproofreadingorreviewingformeaningofdocumenttextormarkings.
ItisunclearwhenHD111‐37waspostedtoGPOAccessbecausethedigitalversionwasdeletedandnopapertrailmaintained.GPOemployeesstated,however,thatallprintedHousedocumentsareautomaticallypostedonGPOAccessandthedocumentwouldhavebeenpostedwithinadayofbeingsenttoproductionforprinting.Theexceptions,accordingtoCPS,aredocumentssuchasStatementsofDisbursements,FinancialDisclosures,andtheCapitolPoliceStatementofDisbursements.
CPSreportedthatover800copiesofHD111‐37wereprinted.BythetimetheClerkcommunicateditssensitivitytoGPOonJune2,2009,atleast265copieshadbeenshippedtoCongressandsomefederalagencies,mosttotheHouseCommitteeonForeignAffairsandtotheHouseandSenateDocumentRooms.NocopiesweresenttotheFederaldepositorylibrariesundertheFederalDepositoryLibraryProgram.3TheremainingcopieswererecalledoraresecuredinasafewithintheGPOOfficeofSecurityPrograms.
3 TheFederalDepositoryLibraryProgram(FDLP)involvestheacquisition,formatconversion,anddistributionofdepositorymaterialstolibrariesthroughouttheUnitedStatesandthecoordinationofFederaldepositorylibrariesinthe50states,theDistrictofColumbiaandU.S.territories.ThemissionoftheFDLPisto
MIRRe:PublicationofHD111‐37August3,2009Page5of7C. RequestforRemovalofHD11137fromGPOAccessOnJune2,2009,CPSwascontactedbyanemployeefromtheGeneralCounsel’sOfficeoftheDepartmentofCommerce.TheemployeedemandedthatHD111‐37beremovedfromtheGPOAccessWebsitebecauseitcontainedsensitivedataandcitedthelastparagraphofthePresident’sletterindicatingthedocumentshouldbehandledas“SensitivebutUnclassified.”CPSreferredtheemployeetotheClerk,statingonlytheHouseofRepresentatives,asGPO’scustomer,coulddirectGPOtoremovethedocumentfromGPOAccess.
Withinashorttime,theClerkphonedGPO’sCPSanddirectedthatHD111‐37beremovedfromtheWebsite.GPOimmediatelyremovedthedocumentfromGPOAccess’fiveWebserversandcleanedthecachememoryforanyremnantsofthefile.TheClerkcommunicatedtoCPSthatshethoughtshehaddoneeverythingrightintryingtodeterminewhethertotransmitHD111‐37toGPOforpublicationandfolloweduptheconversationwithane‐mailonthesamedayoutliningheractionstoverifythatHD111‐37shouldbepublished.
Accordingtothee‐mail,theClerkcontactedtheHouseLegislativeOperations,theHouseSecurityOffice,theIAEA,andtheWhiteHouseClerk’sOfficeforguidanceonpublishingthedocumentbecauseofits“HighlyConfidentialSafeguardsSensitive”markings.TheClerkwastoldthatsincethedocumentwasmarkedunclassified,itshouldbeforwardedtoGPOforprinting.
Inaddition,theClerk’semailshowsthatonJune2,2009,theClerkwascontactedbytheDepartmentofCommerceandinformedthatthedocumentshouldnothavebeenprintedbecauseofthelastparagraphintheletterthatstates,“…shallbeexemptfromdisclosureundersection552ofTitle5,U.S.Code,”(theFreedomofInformationAct).Accordingtothee‐mail,theClerkandthoseshehadcontactedearlierwereunfamiliarwiththatreference.ThoseinterviewedatGPOwerealsounfamiliarwiththesignificanceofthelanguage.
D. GPOPolicyonIdentifyingandSafeguardingSensitiveInformationOurinvestigationinquiredwhetherGPOoritsemployeeshadanystandardoperatingproceduresforidentifyingpotentiallysensitivedocumentsfromcustomersandhowtohandlethem.Thoseinterviewedstatedthatsensitive
disseminateinformationproductsfromallthreebranchesoftheGovernmenttoabout1,250librariesnationwideatnocost.Depositorylibrariesprovidelocal,no‐feeaccesstoGovernmentinformation.
MIRRe:PublicationofHD111‐37August3,2009Page6of7orclassifieddocumentsarerarelyprintedatGPO.Onerecalledthreeorfouroccasionsinthelast10yearsofGPOprintingsensitivedocuments.Manywereunawareofanyprintrequestsforsensitivedocuments.AllbelievedthatGPO’scustomeragenciesareresponsibleforidentifyingsensitivedocumentsandcommunicatingspecialinstructions,giventhehighvolumeofprintrequests,whichcanbeupto100to200adayfromtheHouseofRepresentatives.
Mostemployeeshadnotreceivededucationortrainingforrecognizingoridentifyingsensitivedocumentationorinformation.Somedescribedverbalcommunicationsorlong‐standingprotocolforhandlingsensitivedocuments.However,allofthoseinterviewed,exceptfortheAssistantSuperintendentofPre‐Press,wereunabletociteorprovidewritteninstructions.TheAssistantSuperintendentprovidedaone‐pagedocumenttitled“SecurityWorkforDigitalPrepress,StandardOperatingProcedure.”ThedocumentcitesGPODirective825.7C,GPOSecurityProgramRegulationsanditsamendmentsconcerningsafeguardingofmaterialsanddata.
GPODirective825.7D,InformationSecurityProgram,datedAugust15,2008,providesGPO’s“policygoverningtheprotectionofClassifiedNationalSecurityInformation,andothersensitiveinformation.”4ThedirectivedescribesaprogrammanagedbythePhysicalSecurityBranch(PSB)forensuringthatGPOpersonnelknowandunderstandtheirroleinprotectingandsafeguarding“sensitiveorclassifiedinformation”againstunauthorizeduseordisclosure.Amongotherthings,Section7(z)ofthatdirectivestatesthatallGPOemployeesneedSecurityAwarenessTrainingandEducation“whethertheyhaveaccesstoclassifiedinformationornot”andthat“allGPOemployeesareindividuallyresponsibleforprotectingthenationalinterestsoftheUnitedStates.”Althoughthedirectivepresentsspecificproceduresonhowtorecognize,handle,andsafeguardclassifiedinformation,itdoesnotpresentsimilarspecificpoliciesorproceduresforsensitiveinformation.
RECOMMENDATIONS
WemakethefollowingrecommendationsintheinterestofimprovingGPO’sprocessinthehandlingofanysensitiveinformationandpreventingtheinadvertentdisclosureofsensitiveinformationinthefuture.AlthoughwerealizethattheserecommendationsmaynothavechangedtheoutcomeinthisinstancebecauseGPO’scustomerappearstohavefullyvettedtheprintingrequest,theOIGneverthelessrecommendsthatGPOmanagement4 Althoughthedirectiverefersto“sensitiveinformation,”thattermisnotdefined.However,thedirectivedoesdefinetwosensitiveinformationmarkings:ForOfficialUseOnly(FOUO)andSensitiveButUnclassified(SBU).GPODirective825.7D,paragraph6(o)and6(y).Inaddition,paragraph6(bb)ofthedirectivenotesthat“[o]therdefinitionsnotaddressedhereinmaybelocatedwithinDoD5200.1‐R.”
MIRRe:PublicationofHD111‐37August3,2009Page7of7considerthefollowingactions:
1) Establishaprotocolwithcustomeragenciesonclearlyidentifyingsensitiveinformation,whichmaybepublished,andwrittenproceduresforhandlingsuchinformationaccordingly.
2) Establishwrittenproceduresforverifyinganyrequestforpublishing
documentsthatareclearlyidentifiedormarkedasbeingofasensitiveorotherwiserestrictednature.
3) UpdateGPODirective825.7Dtodefine“sensitiveinformation”and
howtospecificallyrecognize,mark,andsafeguardsuchinformation.
4) DevelopandconductongoingtrainingofGPOemployees,inconformancewithcurrentGPOpolicy,onhowtorecognize,handle,andsafeguardsensitiveinformationanddocuments.ManagementshouldensurebasictrainingforallGPOemployeestorecognizesimplelanguageorkeywordsthatmayindicatethesensitiveorotherwiserestrictednatureofadocument.
PleaseprovideawrittenresponsetotheserecommendationsbyAugust21,2009.Shouldyouhaveanyquestionsorrequireadditionalinformation,pleasefeelfreetocontactmeorDebraMillerofmystaffat3‐0011.
S/o
J.ANTHONYOGDENInspectorGeneral
Attachments
cc:PaulErickson,DeputyPublicPrinter MariaLefevre,ChiefofStaff JanetSansone,ChiefManagementOfficer DrewSpalding,ActingGeneralCounsel AndrewSherman,DirectorofCongressionalRelations
Attachment A '
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Attachment B
11lth CONGRESS 1!it SESSION
37--The List Of Sites, Locations, Facilities, And Activities Declared To The International Atomic Energy Agency
MESSAGE FROM
THE PRESIDENT OF THE UNITED STATES
TRANSMITTING
DOCUMENT NO. 111-37
.a list of the sites, locations, facilities, and activities in the united States declared to the International Atomic Energy Agency (IAEA), under the Protocol Additional to the Agreement between the United States of America and the International Atomic Energy Agency for the Application of Safeguards in the United States of America, with Annexes, as required by Section 271 of Public Law 109-401.
Message and accompanying papers referred to the Committee on Foreign Affairs and ordered to be printed May 6, 2009.
gm.f'l1 ... .. ' <
•
Attachment C
[DOCID: f:hd037.111] From the House Documents Online via GPO Access [wais.access.gpo.gov]
r~S~ 111th Congress, 1st Session - - - - - - - - - -Inouse Document 111-37 I
I -)
THE LIST OF SITES, LOCATIONS, FACILITIES, AND ACTIVITIES DECLARED TO THE INTERNATIONAL ATOMIC ENERGY AGENCY
MESSAGE
from
THE PRESIDENT OF THE UNITED STATES
transmitting
A LIST OF THE SITES, LOCATIONS, FACILITIES, AND ACTIVITIES IN THE UNITED STATES DECLARED TO THE INTERNATIONAL ATOMIC ENERGY AGENCY
(IAEA), UNDER THE PROTOCOL ADDITIONAL TO THE AGREEMENT BETWEEN THE UNITED STATES OF AMERICA AND THE INTERNATIONAL ATOMIC ENERGY AGENCY FOR
THE APPLICATION OF SAFEGUARDS IN THE UNITED STATES OF AMERICA, WITH ANNEXES, AS REQUIRED BY SECTION 271 OF PUBLIC LAW 109-401
<GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT>
May 6, 2009.--Message and accompanying papers referred to the Committee on Foreign Affairs and ordered to be printed
To the Congress of the United States: I transmit herewith a list of the sites, locations,
facilities, and activities in the United States that I intend to declare to the International Atomic Energy Agency (IAEA), under the Protocol Additional to the Agreement between the United States of America and the International Atomic Energy Agency for the Application of Safeguards in the United States of America, with Annexes, signed at Vienna on June 12, 1998 (the "U.S.-lAEA Additional Protocol' '), and constitutes a report thereon, as required by section 271 of Public Law 109-401. In accordance with section 273 of Public Law 109-401, I hereby certify that:
(1) each site, location, facility, and activity, included in the list has been examined by each department and agency with national security equities with respect to such site, location, facility, or activity; and
(2) appropriate measures have been taken to ensure that information of direct national security significance will not be compromised at any such site, location, facility, or activity in connection with an lAEA inspection ..
The enclosed draft declaration list's each site, location, facility, and activity I intend to declare to the IAEA, and provides a detailed description of such sites, locations,
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facilities, and activities, and the provl.sl.ons of the U.S.-IAEA Additional Protocol under which they would be declared. Each site, location, facility, and activity would be declared in order to meet the obligations of the United States of America with respect to these provisions.
The IAEA clas'sification of the enclosed declaration is "Highly Confidential Safeguards Sensitive"; however, the United States regards this information as "Sensitive but unclassified. ' ,
Nonetheless, under Public Law 109-401, information reported to, or otherwise acquired by, the united States Government under this title or under the U.S.-IAEA Additional Protocol shall be exempt from disclosure under section 552 of title 5, United States Code.
Barack Obama. The White House, May 5, 2009. <GRAPHIC(S) NOT AVA+LABLE IN TIFF FORMAT>
o
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