NARA - JFK Assassination Records Processing Project - 2021 Update
https://www.archives.gov/research/jfk/processing-project-2021
Summary
The
National Archives and Records Administration (NARA) has created a dedicated
team to process previously withheld John F. Kennedy assassination-related
records to comply with President Joe Biden’s Memorandum for the Heads of Executive Departments and
Agencies on the Temporary Certification Regarding Disclosure of Information in
Certain Records Related to the Assassination of President John F. Kennedy,
requiring disclosure of releasable records by December 15, 2021.
While
NARA is publishing an additional 1,491 documents in full on December 15, 2021,
there are approximately 515 documents that remain withheld pursuant to sections
10 and 11 of the John F. Kennedy Assassination Records Collection Act (JFK Act)
and are not subject to the 25-year disclosure requirements and the President’s
certification to withhold certain records, established under section 5 of the
JFK Act.
Over the
next year, NARA and the agencies proposing continued postponement of more than
14,000 previously withheld documents will be conducting an intensive review of
each remaining redaction to ensure that the United States Government maximizes
transparency. Any information still withheld from public disclosure that
agencies do not propose for continued postponement beyond December 15, 2022,
shall be released to the public on that date.
Background
When
Congress passed the JFK Assassination Records Collection Act (the JFK Act) in
1992, agencies throughout the federal government transferred assassination-related
records to the National Archives, which established the JFK Assassination
Records Collection (the Collection). The Collection consists of approximately 5
million pages of records. Approximately 94% of the records in the Collection
are open in full. An additional 5.9% are released in part with sensitive
portions removed. Approximately 0.1% of documents identified as
assassination-related remain withheld in full. All documents withheld either in
part or in full were authorized for withholding by the Assassination Records
Review Board (ARRB), an independent temporary agency that existed from 1994 to
1998.
According
to the JFK Act, all records previously withheld either in part or in full
should have been released on October 26, 2017, unless authorized for continued
postponement by the President of the United States. The 2017 date derives
directly from the law that states:
Each
assassination record shall be publicly disclosed in full, and available in the
Collection no later than the date that is 25 years after the date of the
enactment of this Act, unless the President certifies, as required by this Act,
that –
(i)
continued postponement is made necessary by an identifiable harm to military
defense, intelligence operations, law enforcement, or conduct of foreign
relations; and
(ii) the
identifiable harm is of such gravity that it outweighs the public interest in
disclosure.
The JFK
Act was signed by President George H. W. Bush on October 26, 1992; thus the
release date was October 26, 2017.
On April
26, 2018, President Donald Trump certified the continued postponement of information
proposed by the agencies, withholding those records from full public disclosure
until no later than October 26, 2021.
On
October 22, 2021, President Biden issued a Memorandum for the Heads of Executive Departments and Agencies
on the Temporary Certification Regarding Disclosure of Information in Certain
Records Related to the Assassination of President John F. Kennedy,
requiring the disclosure of releasable records by December 15, 2021, and
requiring re-review by December 15, 2022, of documents where agencies request
continued postponement.
The
National Archives has posted records online to comply with these requirements.
For more
information about the ARRB and the JFK Act, you can read the Final Report
of the Assassination Records Review Board. A copy of the JFK Act is in
appendix C of the report.
The JFK
2021 Processing Team
The
National Archives formed a dedicated team of four archivists to process
withheld JFK assassination-related records in preparation for the 2021 release
of additional materials, with significant support from additional staff across
the the agency.
The team
is conducting archival processing on the documents to prepare the records for
review and eventual release. Agencies have been notified that previously
withheld documents will be released in 2022 absent a successful appeal to the
President. The team is working with NARA’s Office of Innovation to determine
the best way to present the documents through Archives.gov during the
additional release in 2022.
Once the
digital release is completed, physical documents will be reconciled with the
five million pages of the paper Collection.
Questions
about the Collection and the 2021 release
What
happened after the October 26, 2021, deadline?
On
October 22, 2021, President Biden issued a memorandum granting a temporary certification to
authorize the withholdings requested by the agencies. In the memorandum, the
President required that the agencies re-review the withheld documents over the
next year. Any agency that sought to request further postponements was
instructed to submit their findings to the Archivist of the United States by
November 30, 2021, and then to the President on December 15, 2021. NARA is
publishing the newly released documents on December 15, based on the decision
of the President.
How do I
know if a document released in December has been previously released?
The data
table for the 2021 release includes a column that describes the previous status
of the document.
What has
not yet been posted?
NARA did
not post the following:
515
documents that are continuing to be withheld in full under sections 10 and 11
of the JFK Act.
Unlike
the Legislative and Executive Branch records discussed in sections 5 and 6 of
the JFK Act, section 10 addresses records withheld under court seal that would
require a federal court order to release. The records still withheld under
section 10 are outside of the current public disclosure rules as outlined in
section 5.
In
section 11, the JFK Act states that the JFK Act does not take precedence over
“section 6103 of the Internal Revenue Code” or “deeds governing access to or
transfer or release of gifts and donations of records to the United States
Government.” Records defined by section 11 are also outside of the current
public disclosure rules outlined in section 5.
As part
of NARA’s processing, we conducted a survey of documents listed as containing
withholdings under both of these sections, and were able to determine that the
metadata identifying documents with section 10 and 11 information was correctly
applied. Since 2017, we also identified several items among our holdings
subject to deed of gift restrictions where a release was possible and
undertaken. We will continue to assess the pertinent deed of gift restrictions
and will release documents in the future.
Documents
included in the Oswald 201 microfilm
The
Oswald 201 microfilm is the voluminous CIA "201" file (also known as
a "personality" file) on Lee Henry [sic] Oswald. The file was opened
in December 1960 and contains a small set of pre-assassination records. After
the assassination, this file became a repository for much of the CIA's
investigative work. The National Archives did not process the Oswald 201
microfilm for release or post it online, since an ARRB evaluation determined
that the microfilm documents are a duplicate of the original paper Oswald 201
file that was processed and released. NARA conducted our own evaluation, which
was completed on February 5, 2018, and agreed with the ARRB’s original
assessment.
Documents
verified to have been released prior to 2016.
The open
in full “document” 180-10125-10179, which is an index of the numbered files of
the House Select Committee on Assassinations (HSCA). Since every document in
the numbered files has otherwise been indexed in the JFK Database, we have not
yet prioritized scanning these 30,000 index cards. However, they are now open
in full and available upon request in the research room at the National
Archives at College Park and will be digitized and made available online in the
future.
Document
180-10142-10194, which is a used typewriter ribbon.
Ford
Library audio files that the ARRB agreed could not be recovered. The
transcripts of the audio files are open and available in the Collection. The
ARRB’s decision was captured on page 2 of the Ford Library’s “Final
Declaration,” dated August 12, 1998 (which is open and available in the ARRB
files). The following Record Identification Form (RIF) numbers describe the
audio files.
178-10004-10390
178-10004-10388
178-10004-10387
178-10004-10394
178-10004-10395
178-10004-10386
178-10004-10391
178-10004-10392
178-10004-10393
178-10004-10389
33
unresolved RIF numbers (see below)
What is
the current status of the 86 documents referred to in the December 15, 2017,
press release?
The
press release referred to 86 RIF numbers where additional research was required
by the National Archives and the other agencies to resolve. After additional
processing, NARA was able to reduce the number of RIF numbers still outstanding
to 79 in 2018. As of 2021, NARA has resolved 46 additional documents, and only
33 RIFs now remain unresolved. These are RIF numbers that were captured in the
JFK Database, but a corresponding document has not yet been found in the
Collection. Some of these might be data entry errors from when agencies
provided thousands of diskettes with metadata in the 1990s. NARA will continue
to try to resolve these issues as archival processing continues on the
Collection.
A list
of the 79 RIF numbers from 2018 as well as the associated metadata is
available here.
Each item has a corresponding entry in the “Current Status” column, which
describes whether the document has been resolved or remains unresolved as of
2021. The 46 resolved documents are linked to their scanned image.
As of
December 2021, how many documents are now withheld in full and how many are
redacted?
Pursuant
to sections 10 and 11 of the JFK Act, 515 documents remain withheld in full and
are not subject to the 25-year disclosure requirements or the President’s
certification to withhold certain records, established under section 5 of the
JFK Act.
Section
10 authorized the ARRB to petition courts to request the Attorney General to
release assassination related information held under seal of a court or “under
the injunction of secrecy of a grand jury.” The ARRB “only identified one
instance where it believed that important assassination records remained under
seal of court and it requested and obtained the assistance of the Department of
Justice in lifting the seal” on 13 transcripts of electronic surveillance
(described in Chapter Five, p.75, and Chapter Six, p.104 of its final
report, which is available on NARA’s website, at
https://www.archives.gov/research/jfk/review-board/report). Five documents
remain withheld in full under this section.
Section
11 completely excluded from the JFK Act tax return information protected under
section 6103 of the Internal Revenue Code, as well as “deeds governing access
to or transfer or release of gifts and donations of records to the United
States Government.” Eleven documents are governed by donor restrictions, and
the remaining 499 withheld in full documents concern tax-related information of
the IRS or the Social Security Administration. The ARRB discusses these
documents at Chapter Five, pp.74-75, and Chapter Eight, pp. 154-55 and 159-60
of its Final Report.
A list
of the items withheld in full as of 2021 is available here.
Redactions
still appear in 14,236 documents, although most of these documents now contain
fewer redactions than versions released prior to October 26, 2017.
On
December 15, 2021, NARA released an additional 1,491 documents in full totaling
19,193 pages.
The page
where the new files can be found has a "Formerly Withheld" column
with these values found in it: "Redact", "Release",
"Redacted Version Only", "Missing". Is there a place
where precise definitions of these 4 values can be found?
“Redact”
means that prior to 2021 the item was released in part.
“Release” may mean multiple conditions:
In most instances, there was a release determination from a prior year, but the
fully released document had not yet been posted online.
In a few instances, there was a redact determination from a prior year, but the
document that was posted online contained no redactions, and NARA is confirming
that the document was released in full.
“Redacted Version Only” means that prior to 2021 the item was released in part,
and as of 2021 NARA has identified that release as the best available copy.
This is usually because the original document was itself redacted.
“Missing” means that prior to 2021, the document was not precisely identified
within the JFK Collection.
What
will happen with the Collection between December 15, 2021, and December 15,
2022?
Over the
next year, agencies proposing continued postponement and NARA shall conduct an
intensive review of each remaining redaction to ensure that the United States
Government maximizes transparency, disclosing all information in records
concerning the assassination, except when the strongest possible reasons
counsel otherwise. This review shall include documents within the assassination
records collection designated as “not believed relevant” by the Assassination
Records Review Board established under the JFK Act, but nonetheless placed
within the collection by the ARRB.
Any
information that an agency proposes for continued postponement beyond December
15, 2022, shall be limited to the absolute minimum under the statutory
standard. An agency shall not propose to continue redacting information unless
the redaction is necessary to protect against an identifiable harm to the
military defense, intelligence operations, law enforcement, or the conduct of
foreign relations that is of such gravity that it outweighs the public interest
in disclosure. In applying this statutory standard, an agency shall:
(i)
Accord substantial weight to the public interest in transparency and full
disclosure of any record that falls within the scope of the JFK Act; and
(ii)
Give due consideration that some degree of harm is not grounds for continued
postponement unless the degree of harm is of such gravity that it outweighs the
public interest.
For any
record containing information that an agency proposes for continued postponement
beyond December 15, 2022, the agency shall provide, no later than December 15,
2021:
(i)
an unclassified letter, to be signed by the head of the agency, providing a
written description of the types of information for which the agency is
proposing continued postponement and reasons for which the agency is proposing
continued postponement of such information;
(ii)
an unclassified index identifying for each such record the reasons for which
the agency is proposing continued postponement of information in such record;
and
(iii)
a specific proposed date identifying for each such record when the agency
reasonably anticipates that continued postponement of information in such
record no longer would be necessary or, if that is not possible, a specific
proposed date for each such record identifying when the agency would propose to
next review again after December 15, 2022, whether the information proposed for
continued postponement in such record still satisfies the statutory standard
for postponement.
NARA
shall review each proposed redaction no later than September 1, 2022, in
consultation with:
(i)
The Department of Defense, if the agency proposing the redaction asserts an
anticipated harm to the military defense;
(ii)
The Office of the Director of National Intelligence, if the agency proposing the
redaction asserts an anticipated harm to intelligence operations;
(iii)
The Department of Justice, if the agency proposing the redaction asserts an
anticipated harm to law enforcement; and
(iv)
The Department of State, if the agency proposing the redaction asserts an
anticipated harm to the conduct of foreign relations.
The
relevant consulting agency, as designated pursuant to subsection (d) of this
section, shall provide its assessment to NARA as to whether the information
proposed for continued postponement satisfies the statutory standard for such
postponement. In reviewing a proposed redaction, NARA or the relevant
consulting agency—as designated pursuant to subsection (d) of this
section—should consult with the agency that proposed the redaction.
If NARA
does not agree that a proposed redaction meets the statutory standard for
continued postponement, it shall inform the agency that proposed the redaction.
After consultation with NARA, the agency that proposed the redaction may, no
later than October 1, 2022:
(i)
withdraw the proposed redaction; or
(ii)
refer the decision on continued postponement to the president through the
Counsel to the president, accompanied by an explanation of why continued
postponement remains necessary to protect against an identifiable harm to the
military defense, intelligence operations, law enforcement, or the conduct of
foreign relations that is of such gravity that it outweighs the public interest
in disclosure.
If NARA
agrees that a proposed redaction meets the asserted statutory standard for
continued postponement, the Archivist shall recommend to the president, no
later than October 1, 2022, that continued postponement from public disclosure
of the information is warranted after December 15, 2022.
At the
conclusion of the one-year review, any information still withheld from public
disclosure that agencies do not propose for continued postponement beyond
December 15, 2022, shall be released to the public on that date.
(i)
At the conclusion of the one-year review, each unclassified letter described in
subsection (c)(i) of this section and each unclassified index described in
subsection (c)(ii) of this section shall be disclosed to the public on December
15, 2022, with any updates made to account for any information initially
proposed for continued postponement that is not postponed from public
disclosure beyond December 15, 2022.
What
will happen to records publicly disclosed prior to 2016?
The
Archivist shall issue a plan,
no later than December 15, 2021, to digitize and make available online NARA’s
entire collection of records concerning President Kennedy’s assassination.
The Archivist
shall provide additional context online about the records that have been
withheld in full under sections 10 and 11 of the JFK Act—primarily documents
containing tax-related information of the Internal Revenue Service or the
Social Security Administration—that are not subject to the Presidential
certification requirement under section 5 of the JFK Act. NARA will work with
the Internal Revenue Service to determine what additional context is
appropriate within the confines of 26 U.S.C. 6103 and 6105.
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