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Domestic Investigations and Operations Guide
Federal Bureau of Investigation (FBI)
December 16, 2008
This.is a privileged document that cannot be released in whole or in part to persons or agencies outside the Federal
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GENERAL INFORMATION: Questions or comments pertaining to the DIOG can be
directed to:
The Deputy Director’s Office
or
FBIHQ, Director’s Office, Resource Planning Office (RPO), Division [00]
Corporate Policy Office (CPO) b6
Division Point of Contact: b7c
(NOTE: Document is a new publication; no previous DIOG versions are available)
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Table of Contents
(U) Preamble……………………………………………. … …………………….. xi
1. (U) Scope andPurpose…………………………………………………………… ………………….
1.1. (U ) Scope ……………………………………….. : ……………………………………………………………….
1:2. (U ) Purpose………………………………………………………………………………………………………. I
2. (U) General Authorities and Principles ……………………………………………… 2
2.1. (U) Scope of the Attorney General’s Guidelines for Domestic FBI Operations …………. 2.2. (U) General 2 FBI Authorities under AGG-Dom………………….. …………………
2.3. (U) FBI as an Intelligence Agency ……………………. …….. 3……………….
2.4. (U) FBI Lead Investigative Authorities …………… ……………………. 4 2.5. (U) Status as Internal Guidance ………………………………… ………………………………. 10
2.6. (U) Departures from the AGG-Dom ……………………..–……………….. 10
2.7. (U) Departures from the DIOG…………………………………………………..
2.8. (U) Other FBI Activities Not Limited by AGG-Dom ……………………….. .
2.9. (U) Use of Classified Investigative Technologies ……… …………….. 12
2.10. (U) Application of AGG-Dom and DIOG……………………… …………… 12
3. (U) Core Values, Roles, and Responsibilities………………………….. …………… 13
3.1. (U) The FBI’s Core V alues ……………………………………. . ………………………… 13
3.2. (U) Deputy Director Roles and Responsibilities …………………………………..
3.3. (U) Special Agent/fritelligence Analyst/Task Force Officer/FBI Contractor/Others
Roles and Responsibilities……………………….. ………………………… ……………. 14
3.4. (U) Supervisor Roles and Responsibilities ……………………………… 15
3.5. (U) Chief Division Counsel Roles and Responsibilities…………….. … 18
3.6. (U) Office of the General Counsel Roles and Responsibilities …………. …….. 18
3.7. (U) Corporate Policy Office Roles and Responsibilities …………….. ………………. 19
3.8. (U) Office of Integrity and Compliance Roles and Responsibilities ………… … 19 3.9. (U) Operational Program Manager Roles and Responsibilities………………………..19
3.10. (U) Division Compliance Officer Roles and Responsibilities…………………… .20
3.11. (U) FBI Headquarters Approval Levels……………………………………….. . .. . …… 20
4. (U) Privacy and Civil Liberties, and Least Intrusive Methods…………….. ……………2i
4.1. (U) Civil Liberties and Privacy……………. . ………………. 21
4.2. (U) Protection of First Amendment Rights…………….. . ………………… 24
4.3. (U) Equal Protection under the Law…… ……….. …………………….. 30
4.4. .(U) Least Intrusive M ethod ….. ……………………………………………………… 34
5. (U) Assessm ents …………………….. ………………. …………………………. 39
5.1. (U) Overview ………………………. 39
5.2. (U) Purpose and Scope…… ………. 40
5.3. (U) Civil Liberties and Privacy ………………………*.-. …-.-.-. . ………. 43
5.4. (U) Authorized Purposes (AGG-Dom, Part II.A.2.Authorized Activities)……44
5.5. (U//FOUO) Standards for Initiating-or Approving an Assessment ………………… 45 5.6. (U).Duration, Approval, Notice, Documentation, File Review and Responsible Entity45
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5.7. (U) Sensitive Investigative Matter / Academic Nexus / Buckley Amendment …………. 5.8. 57 (U//FOUO) Standards for Initiating or Approving the Use of an Authorized
Investigative M ethod ………………………………………….. ………………….. 58
5.9. (U) Authorized.Investigative Methods.in Assessments and Predicated Investigations.58 5.10. (U) Investigative Methods Not Authorized During Assessments ………… ………….. 71
5.11. (U//FOUO) FBI National Collection Requirements ……………. …………………. 72
5.12. (U//FOUO) FBI Field Office Collection Requirements ………………………….. 73
5.13. (U) Retention and.Disseminationof Privacy Act Records ………………… ……… 73
5.14. (U) Assessment File Records.Management and Retention………………………….74
6. (U) Preliminary Investigations………………………………………………. . …….. . ……………….. 76
6.1.. (U) Overview ………………………………… ……… ………… . . …………………… 76
6.2. (U) Purpose and Scope………………… .-…………….. . 76
6.3. (U) Civil Liberties and Privacy.. …………….. ………………… 76
6.4. (U) Legal Authority…………………….. ………………………… 77
6.5. (U ) Predication………………………………….. ………………………………………. 78
6.6. (U//FOUO) Standards for Initiating or Approving a Preliminary Investigation ………. 78
6.7. (U) Duration, Approval, Notice, Documentation and File Review …………………….78 6.8. (U//EOUO) Standards for Initiating or Approving the Use of an Authorized
Investigative Method……………. ……………………………… . 80
6.9. (U) Authorized Investigative Methods in Preliminary Investigations ……….. 81
.10. (U) Sensitive Investigative Matter / Academic Nexus / Buckley Amendment ………… 83
6.11. (U) Program Specific Investigative Requirements……………………. …… ………….. 84
7. (U) Full Investigations .. ……… …………. …………………………………………….. 85
7.1. (U) Overview ……………………. ……. .85
7.2. (U) Purpose and Scope. ……………. …………….. …… … ……………………….. 85
7.3. (U) CiVil Liberties and Privacy …….. ******………..-………………………85
7.4. (U) Legal Authority …………….. …-. **–***……… ………………………. 86
7.5.. (U) Predication…………………….. … …………………………… 87
7.6. (U//FOUO) Standards for Initiating or Approving a 1IFnuvleis tigation …………….. 88
7.7. (U) Duration, Approval, Notice, Documentation and File Review ………………. 88
7.8. (U//FOUO) Standards for Initiating or Approving the Use of an Authorized
Investigative Method…………… ………… . . . 90
7.9. (U) Authorized Investigative Methods in Full Investigations …. … ……….. .90
*7.10. (U) Sensitive !nvestigative Matter/Academic Nexus /Buckley Amendment …………. 92
7.11. (U) Program Specific Investigative Requirements ………………………………….. 93
8. (U) Enterprise Investigations……………………………………………. ………………… … 94
8.1. (U) Overview ……………………………………….. 94
8.2. (U) Purpose, Scope and Definitions……………….. …… . .. …………. .94
8.3. (U) Civil Liberties and Privacy………….. … ………………. 94
8.4. (U) Legal Authority…………………….. … 95
8.5. (U) Predication ……………………………………………………….. 95
8.6. (U) Duration, Approval, Notice, Documentation and File eview……………………….
9. (U) Foreign Intelligence…………………………………………..98
9.1. (U) Overview…………………. …………”.. ……………. . …………………. 98
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9.2. (U) Purpose and Scope……………………………………. ………………………….. 9.3. (U) Civil 99 Liberties and Privacy…… …………. ………… . …………….. 99
S9.4. (U) Legal Authority …………………………………….. -…. . . …. 100 9.5. (U//FOUO) Duration, Approval, Notice, Documentation, File Review and FBIHQ
Standards for Approving the Initiation of Positive Foreign Intelligence Investigations 101 9.6. (U//FOUO).Standards for Initiating or Approving the Use of an Authorized
Investigative M ethod………………… ……………………. …………………………………. 102 9.7. (U) Authorized Investigative Methods in Foreign Intelligence Assessments:and
Predicated Investigations……………………………………… 102
9.8. (U//FOUO) Investigative Methods Not Authorized During Foreign Intelligence
Investigations………………………………… ……………. ………………………. ……….. 04
9.9. (U) Sensitive Investigative M atter…………………………………………………… ……….. 104 9.10. (U) Approval and Notification…………………………… …………………. 105 9.11. (U) Retention of Information……………………………….. ………… …………………… 107
10. (U) Sensitive Investigative Matter / Academic Nexus……………………. …….. 108
10.1. (U ) O verview …………………………………………. ………………………………. …………. 108
10.2. (U) Purpose, Scope and Definitions………………… ……………………………. 8
10.3. (U//FOUO) Factorsto Consider When Initiating or Approving an Investigative
Activity Involving-a Sensitive Investigative Matter…………………………. …….. 09 10.4. (U) Duration, Approval, Notice and Documentation…………………….. ……….. 110 10.5. (U//FOUO) Distinction Between Sensitive Investigative Matter and Sensitive
C ircum stance………………………………………………………….. ……………………………. 11
11. (U) Investigative Methods ………………………………………………………………………. 112
11.1. (U) Overview ……………………………………. .-………………… …… ……………………. 112 11.1.1.. (U) Least Intrusive M ethod……………. ……………………………………………. 112
11.2. (U) Authorized Investigative Methods in Assessments and Predicated IfivestigationsI 13 11.2.1. (U) Authorized Investigative Methods in Assessments……………………………….. 113
11.2.2. (U) Authorized Investigative Methods in Preliminary Investigations…………….. 113 11.2.3. (U) Authorized Investigative Methods in Full Investigations ………….. 114 11.2.4. (U) Particular Investigative M ethods………………………………………………………… 15
11.3. (U) Investigative M ethod: Mail Covers……… ………………………… 116
11.3.1. (U) Summary ………………………………………………….. …. 116
11.3.2. (U) Legal Authority ………………………………………………. 116
11.3.3. (U) Definition of Investigative Method………………. …. . ……. 116 11.3.4. (U) Standard for Use and Approval Requirements for Investigative Method….. 117
11.3.5. (U) Duration of Approval ………………………………………….. . ….. 119 11.3.6. (U) Specific Procedures ………………. . ………………… ………. …………….. 119
11.3.7. (U) Compliance and Monitoring…………. ……………………………… 119
11.4. (U) Investigative Method: Physical searches of personal or teal property where a
warrant or court order is not legally required because there is no reasonable
expectation of privacy (e.g., trash covers)….. …………. …………… . 120 11.4.1. (U) Sum m ary …………………… . …………………….. …………………. 20
.11.4.2. (U). Legal Au thority ……. ……. . …….. ………………………………………………..1. 20
11.4.3. (U) Definition of Investigative Method……………… … …… 120
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11.4.4. (U//FOUO) Standards for Use and Approval Requirements for Investigative
Method ……………………….. ……………. 11.5. 1 121 (U) Investigative Method; Consensual Monitoring of Communications, including
consensual computer monitoring……………………………………………. …. .122
11.5.1. (U) Summary ……………………………. …… …………………………. 122
11.5.2. (U) Legal Authority ………………………. …………………………………122
11.5.3. (U) Definition of Investigative M ethod …………. ………….. ………………………. 122 11.5.4. (U) Standards for Use and Approval Requirements for Investigative Method …123 11.5.5. (U) Duration of Approval ……………. ……. …………………………….. 127
11.5.6. (U//FOUO) Specific Procedures…. ….. ………… ………… ………………. 128 11.5.7. (U//FOUO) Compliance and Monitoring……………………………………………. 129 11.6. (U) Investigative Method: Use of closed-circuit television, direction finders, and other
monitoring devices (Not needing a Court Order)…………………………………………….. 130 11.6.1. (U) Sum m ary …………… ………………………… ……………………………… … 130
11.6.2. (U) Legal Authority ………………………………. ……… ………………….. 130 11.6.3. (U//FOUO) Definition of Investigative Method …………. ……… ……………. 130 11.6.4. (U//FOUO) Standards for Use and Approval Requirements for Investigative
M ethod …………………………………………. 131
S1.6.5. (U)Duration of Approval ……………………………-………… … .. 132
11.6.6. (U//FOUO) Specific Procedures……………………… ………………. …………. 132
11.6.7. (U//FOUO) Compliance and Monitoring……………………. ……………………… 133 11.7. (U) Investigative Method: Polygraph …………… ……………………………… 134
11.7.1. .(U)Summary …………………….. ….-…………… 134
11.7.2. (U) Legal Authority …………………….. ……. .. …….. .. ………….. …. 134
11.7.3. (U//FOUO) Definition of Investigative Method…………………. ……. 134 11.7.4. (U//FOUO) Standards for Use and Approval Requirements for Investigative
M ethod ………………………………………………………………………………………………….. 134 11.7.5. (U) Duration of Approval ……………… ….. 1.1.3..4………………..
11.7.6. (U//FOUO) Specific Procedures….. ……………. …………………. 135
11.7.7. (U//FOUO) Compliance and Monitoring……………………. ………… 135 11.8. (U), Investigative Method: Undercover Operations …………. …………………………. 136
118.1. (U) Sum m ary ……………………………………………………… ……………………….. 13 6
11.8.2. (U) Legal Authority………………………. . ………………………………. 136
11.8.3. (U//FOUO) Definition of Investigative Method ……………. ……………………. 136
(U//FOUO) Distinction Between Sensitive Circumstance and Sensitive Ihvestigative Matter:137
11.8.4. (U//FOUO) Standards for Use and Approval Requirements for Investigative
Me thod ………………………………………………….. …………….. 37 11.8.5. (U) Duration of Approval …………………………………….. 139
1.1.8.6. (U) Additional Guidance………………………………………. ……. 139
11.8.7. (U//FOUO) Compliance and Monitoring, and Reporting Requirements ……….. 139 11.9. (U) Investigative Method: Compulsory process as authorized by law, including grand jury subpoenas and other subpoenas, National Security Letters ……………. .140 11.9.1. (U) Federal Grand Jury Subpoena……………………………………. 140 11.9.2. (U) Administrative Subpoena.. ….. …. …………………… 152
11.9.3. (U) National Security Letter ……….. …… …………………. 158
11.9.4. (U) Business Record Under FISA…………….. : …. ……….. 165
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11.10. (U) Investigative Method: Accessing stored wire and electronic communications transactional and records in conformity with chapter 121 of title 18, United States Codel67 11.10.1. (U) Sumniary …………………………….. …… ……………………… 167
11.10.2. (U) Legal Authority …………………………………. 68
11.10.3. (U) Definition of Investigative Method …………………. …. ………………. 168
11.10.4. (U) Approval Requirements for Investigative Method …………… ……………….179
11.10.5. (U) Duration of Approval………………. ……………… 179
11.10.6. (U//FOUO) Specific Procedures …………………”. . .. ………….. 179
11.10.7. (U) Notice and Reporting Requirements ………………………. ……
11.10.8. (U) Other Applicable Policies…………………………………………… 80
(U) Stored Communications Quick Reference Guide 5/1/2008 ………… ………………. 180
11.11. (U) Investigative Method: Pen Registers and Trap and Trace devices in conformity
with chapter 206 of Title 18, United States Code, and the Foreign Intelligence
Surveillance Act…………………………………………………..
11.11.1. (U) Summary …….. … ……………………… .. . . . . …… 181
11.11.2. (U)Legal Authority ………………………………………… ….. 181
11.1.3. (U) Definition of Ivestigative Method…………….. … ……… …………. 181
11.1.. (U) Standards for Use and Approval Requirements for Investigative Method …181
1.11.5. (U)Duratio ofAppoval……………………………. 84
11.11.6. (U//FOUO) Specific Procedures………. ………………… 184
11.117. (U) Use and Dissemination of Information Derived from Pen Register/Trap and
Trace Authorized Pursuant to FISA ………………………………….. 185
11.11.8. (U) Notice and Reporting Requirements ………………… ….. .. ……… 186
11.11.9. (U) Special Circumstances………….. ………………… … …. 86
11.12. (U) Investigative Method:Electronic Surveillance under Title III and under FISA.. 193
11.12.1. (U) Summary : ……………………….. 93
11.12.2. (U) Legal Authority ……………………. ……… ………….. 193
11.12.3. (U) Definition of Investigative Method ………… “……………. ……………. 193
11.12.4. (U) Standards for Use and ApprovalRequirements for Investigative Method …193 11.12.5. (U) Duration of Approval …………………………. 196
11.12.6. (U) Specific Procedures……………………………. ……………….
11.12.7. (U) Notice and Reporting Requirements … ……….. …………… 199
11.12.8. (U) Compliance and Monitoring … ……………………. 200
11.12.9. (U) Special Circumstances………….. * ……………………………. 200
11.12.10. (U) Other Applicable Policies…. ……………….. ………… 200
11.13. (U) Investigative Method: Physical searches, including mail openings, requiring
judicial order or warrant……………………………………………201
11.13.1. (U) Summary ………….. .- …………………. *— 201
11.13.2. (U) Legal Authority………………. …………. 201
11.13.3. (U) Definition of Investigative Method ……………… – …… ……. 201
11.13.4. (U) Approval Requirements for Investigative Method ………………………. 04
11i.13.5. (U) Duration of Approval …….. .. …………………….. 204
11.13.6. (U) Specific Procedures ……… . ………………………………. 204
11.14. (U) Investigative Method: Acquisition of foreign intelligence information in
conformity with Title VII of the Foreign Intelligence Surveillance Act……………. 213 11.14.1. (U)Summary……. ………………. ……………. ……………… 213
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11.14.2. (U) Legal Authority …………………………. ………… 213
11.14.3. (U) Definition of Investigative Method………………………….. .213
11.14.4. (U//FOUO) Standards for Use and Approval Requirements for Investigative
Method…………………………………….. .213
11.14.5. (U) Duration of Approval ………………. …. . ….. 213
11.14.6. (U//FOUO) Specific Collection Procedures for Title VII ………………………. 213
12. (U) Assistance to Other Agencies……………………… ………. …….. 216
12.1. (U) Overview………….**……………………………216 . … •”"°”"*.*”.”,°, ” *-*.. ,..
12.2. (U) Purpose and Scope……………………………….. .. .. . 22116.6..
12.3. (U//FOUO) Standards for Providing and Approving Investigative Assistance to Other
A gencies ………………………………………………….. ………………………………… 2 17
12.4. (U) Documentation andRecord Retention ………… ……… …………. 217
12.5. (U) Duration, Approvaland Notice for Investigative Assistance to Other Agencies..217
12.6. (U//FOUO) Standards for Providing and Approving Technical Assistance to Foreign,
State, Local and Tribal Agencies ……………………………… …………….. ………..225
13. (U) Extraterritorial Provisions………………………. ….. …. ……. ………………… 227
13.1. (U) Overview ………………………………………….. 227
13.2. (U) Purpose and Scope………………”.”………”….”.”". “227
13.3. (U) Legal Attache Program………………………….. …………. … ……….. .228
14. (U) Retention and Sharing of Information…………. ……………………………………… 229
14.1. (U) Purpose and Scope ……………………………………………………………. 229
14.2. (U) The FBI’s Records Retention Plan, and Documentation ………………………….. 229
14.3. (U) Information Sharing ………………………………. ……….. 30
14.4. (U) Information Related to Ciiminal Matters ………….. ……………….. 231
A. (U) Coordinating with Prosecutors ……………………………… …………. 231
B. (U) Criminal Matters Outside FBI Jurisdiction ……………. ………… 231
C. (U) Reporting of Criminal Activity … ****……………….. …………. …232
14.5. (U) Information Related to National Security and Foreign Intelligence Matters ……. 232
(U) Department of Justice……………………………………232
(U) W hite House ……………………………….. ………….. 233
14.6. (U) Special Statutory Requirements …………………. 235
15. (U) Intelligence Analysis and Planning…………… …….. ……………………… 236
15.1: (U) Overview ……………… …………………………… 236
15.2. (U) Purpose and Scope………………………..”"”"”"”"”………………236
15.3. (U) Civil Liberties and Privacy”"”"”"”"”….. ………………….. 237
15.4. (U) Legal Authority ………………….. *** —— –……………………..2..3.7..
15.5. (U//FOUO) Standards for Initiating or Approving Intelligence Analysis and Planning238
15.6. (U//FOUO) Standards for Initiating or Approving the Use of an Authorized Investigative Method in IntelligenceAnalysis and Planning ……. ………… .238 15.7. (U) Authorized Activities in Intelligence Analysis and Planning .. …………………… 238
16. (U) Undisclosed Participation (UDP)…………………………….. ……………….. 242
16.1. (U) O verview ………………………………………………………
16.2. (U) Purpose, Scope, and Definitions …… ……………… ……………… 243
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16.3. .(U) Requirements for Approval………………-………………. ….. … ……… .. 16.4. (U) 45 Supervisory Approval Not Required……………………………….. .248
16.5. (U//FOUO) Standards for Review and Approval ……………………………. ………. 249 16.6. (U) Requests for Approval of Undisclosed Participation …………………………. 250
16.7. (U ) D uration…………………………………………………. …… ………………………………….. 25
16.8. (U//FOUO) Sensitive Oversight Review Committee ……………….. 251
17. (U) Otherwise Illegal Activity. ………………….. ******……………. 256
17.1.. (U) Overview ………………… ……………….. ……………………… 256
17.2. (U) Purpose and Scope ….. …………… ……………………….. …. ……………. 256
17.3. (U//FOUO) OIA in Undercover Activity………………. ………………….. 256
17.4. (U//FOUO).OIA fora Confidential Human Source …..-………….–* . …. … 257
17.5. (U//FOUO) Approval of OIA by a Special Agent in Charge…. ……. .. … 257
17.6. (U//FOUO) Standards for Review and Approval of OIA ……………………….258
17.7. (U//FOUO) OIA not authorized…………………………………….258
17.8. (U//FOUO) Emergency Situations ……. ……………………………. 258
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List of Appendices
Appendix A: The Attorney General’s Guidelines for Domestic FBI Operations…………… A-1
Appendix B: Executive Order 12333……….. …………………………………………………… BAppendix
C: Sensitive Operations Review Committee……………………. ……………….. C-1
Appendix D: Superceded Documerits and NFIP, MIOG, and MAOP Sections……………. D-1
Appendix E: Key Words, Definitions, and Links …………………………… …………….. E-1
Appendix F: Acronyms……………… ……………………………………………….. FAppendix
G: Investigations Manual – Classified Provisions………………………………….. G-1
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