# Official secrecy: the classification of state knowledge How states decide what their citizens may not know: the old arcana imperii, Britain's Official Secrets Acts and the D-Notice system; the classification ladder, security clearances, and the atomic 'born secret' doctrine; the Pentagon Papers showing secrecy used to hide error; and the pushback of FOIA. *This story parallel: Leaks, whistleblowers, and disclosures* *This story parallel: Free speech and how it is subverted* *This story parallel: The military-industrial complex and Pax Americana* *This story parallel: The secret agencies: CIA, FBI, and NSA* *This story parallel: MI5, MI6, and British intelligence* *This story part of: Military and security* *DARPA, Silicon Valley, and the security state parallel this story* *The surveillance state parallel this story* *State, law, and coercion parallel this story* ## c. 100 — Arcana imperii, the secrets of state The Roman historian Tacitus used the phrase arcana imperii, the secrets of empire, for the hidden knowledge and methods that let rulers keep power. The idea that a state holds truths too dangerous for the public runs from Rome through Renaissance thinkers and into the modern world. Historians read Tacitus as describing this practice, not endorsing it. ## 1589 — Reason of state and Botero's manual for rulers Giovanni Botero published Della ragion di stato, giving a name to the idea that the survival of the state can justify actions ordinary morality would forbid, including secrecy and deception. Reason of state made concealment a normal tool of government rather than a scandal. Critics then and since argued it let princes hide crimes behind the needs of the realm. ## c. 1700 — The black chambers open the mail European courts ran secret cabinets, the French cabinet noir and the Habsburg cipher office in Vienna among them, that quietly opened diplomatic mail, copied it, and broke its codes. This hidden interception of communication was one of the first bureaucracies of state secrecy. The work itself was secret, so the public rarely knew its own letters were read. ## 1889 — Britain's first Official Secrets Act Parliament passed the Official Secrets Act of 1889, the first British law to make leaking official information a crime. It grew out of fears of espionage and of civil servants selling documents. The act set the pattern for treating government information as the property of the state. ## August 1911 — The Official Secrets Act of 1911 passes in a day Amid a public panic about German spies, Parliament rushed a sweeping new Official Secrets Act through in a single day with almost no debate. Its notorious Section 2 made the unauthorized sharing of any official information a crime, no matter how trivial or harmless. The catch-all clause stayed on the books until 1989 and became a model for secrecy laws across the British Empire. ## 1912 — The D-Notice system asks the press to stay quiet Britain set up a joint committee of officials and newspaper editors that issued Defence Notices, requests to the press not to publish material said to endanger national security. The system was voluntary and had no legal force, but editors mostly complied. Supporters called it a sensible partnership; critics called it a polite form of censorship that trained the press to self-silence. ## c. 1917 — Confidential and secret markings enter military paper During the First World War the armies of Europe and the United States began stamping documents with a graded scale of secrecy, borrowing French practice that ranked papers from confidential up to the most guarded. This was the seed of the modern classification hierarchy. What started as battlefield practice slowly hardened into a permanent bureaucracy of stamps and rules. ## 1940 — Roosevelt's order builds a classification machine President Franklin Roosevelt issued Executive Order 8381, the first presidential order to set rules for classifying government information. It gave the marking system a legal footing rooted in the president's own authority rather than an act of Congress. From here the American secrecy regime would grow through a chain of executive orders, each rewriting the last. ## c. 1943 — Compartments and code words wall off the secrets The Manhattan Project and Allied codebreaking under the ULTRA code word pioneered compartmentalization, the rule that people learn only what their own task requires and no more. This need-to-know approach later grew into Sensitive Compartmented Information, whole layers of secrecy hidden inside secrecy and reached only through special code-word clearances. It guards against leaks but also makes it hard for anyone to see the whole picture. ## 1946 — The atomic bomb is born secret The Atomic Energy Act created a category called Restricted Data covering all information about nuclear weapons and material. Under the born secret doctrine, such knowledge counts as classified from the moment it exists, even if a private citizen works it out independently and the government never stamped it. Legal scholars have long debated whether classifying ideas at birth can survive a free-speech challenge, a question courts have never fully settled. ## 1947 — Loyalty checks and the security clearance President Truman's Executive Order 9835 launched a loyalty program that screened federal employees for ties deemed subversive, building the machinery of background checks and security clearances. Access to secrets now depended on passing an investigation into a person's past and associations. Critics said the program punished beliefs and hearsay and fed the coming Red Scare. ## 1951 — The Invention Secrecy Act locks up patents The Invention Secrecy Act let the government slap a secrecy order on a patent application whose disclosure it judged harmful to national security, barring the inventor from publishing or filing abroad. Thousands of such orders have been imposed and some have stayed in force for decades. It is a quiet corner of the secrecy state where private ideas can be sealed by the government. ## 1951 — Truman extends secrecy to the civilian government Executive Order 10290 let civilian agencies, not just the military, classify information in the name of national security. Newspaper editors and members of Congress attacked it as a huge expansion that would let any agency hide its papers. The backlash showed an early awareness that classification could spread far beyond genuine defense secrets. ## 1952 — A spy agency is created in secret President Truman created the National Security Agency by a classified memorandum, so secret that the agency's very existence went unacknowledged for years and insiders joked that NSA stood for No Such Agency. A whole institution collecting the nation's signals intelligence operated with almost no public record. It became a symbol of how deep official secrecy could run in a democracy. ## 1953 — Confidential, Secret, Top Secret take their modern form President Eisenhower's Executive Order 10501 tightened the rules and fixed the three-tier ladder of Confidential, Secret, and Top Secret that the United States still uses. It tried to rein in the earlier sprawl by limiting which agencies could classify. The order set the shape of the system that every later president would tinker with but never dismantle. ## 1953 — The state-secrets privilege and the Reynolds case In United States v. Reynolds the Supreme Court recognized a state-secrets privilege, letting the government block evidence in court by claiming it would expose national secrets. The case involved a crashed military plane, and the widows were denied the accident report. When that report was finally declassified decades later it showed ordinary negligence and no secrets at all, which critics cite as proof the privilege can be used to cover up mistakes. ## July 1966 — The Freedom of Information Act opens the files The Freedom of Information Act gave any person the right to request records from federal agencies and forced the government to justify keeping them secret rather than the other way around. President Johnson signed it reluctantly and agencies resisted it for years. It became the main legal tool for prying loose what the state would rather keep hidden. ## June 1971 — The Pentagon Papers show secrecy hiding failure A leaked secret history of the Vietnam War revealed that administrations had misled the public for years about a war they privately doubted. The papers showed that much of the secrecy protected the government from embarrassment, not the nation from an enemy. The case became the classic proof that classification is often used to hide error and wrongdoing rather than real defense secrets. ## 1974 — Watergate sharpens the transparency laws In the wake of Watergate, Congress strengthened the Freedom of Information Act with tighter deadlines and real teeth, overriding President Ford's veto. The scandal had shown how secrecy protected abuse of power at the very top. The distrust of hidden government fed a broad wave of openness reforms in the mid-1970s. ## 1975 — The Church Committee opens the family jewels A Senate committee led by Frank Church investigated the intelligence agencies and exposed a hidden record of assassination plots, illegal spying on Americans, and mail opening, much of it collected in an internal CIA file nicknamed the family jewels. The hearings showed how secrecy had shielded serious abuses from any oversight. They led to permanent intelligence committees and new limits on domestic spying. ## 1976 — Neither confirm nor deny, the Glomar response When a reporter sought records about a secret CIA operation to raise a sunken Soviet submarine using the ship Glomar Explorer, the agency refused even to say whether such records existed. Courts accepted this neither confirm nor deny answer, which became known as the Glomar response. It let the government dodge disclosure without ever admitting what it was hiding, and critics say it can swallow the right to know. ## 1976 — Sunshine laws open the meetings The Government in the Sunshine Act required many federal agencies to hold their meetings in public, part of a wider spread of state and national sunshine laws. The idea was that decisions made in the open are harder to corrupt. These laws pushed transparency beyond documents to the act of governing itself. ## 1985 — The National Security Archive builds a counter-library Scholars and journalists founded the National Security Archive at George Washington University to use the Freedom of Information Act at scale and gather declassified documents into a public collection. It became an independent library of the secrets the government had been forced to release. Its filings and lawsuits have pried open records on wars, coups, and surveillance. ## 1989 — Reforming Section 2 after the Ponting acquittal After a jury refused to convict civil servant Clive Ponting, who leaked documents about the Falklands War and argued he served the public interest, pressure grew to reform the sweeping 1911 law. The Official Secrets Act of 1989 replaced the blanket Section 2 with narrower categories, but it removed the public-interest defence that had saved Ponting. Reformers were split on whether it was a real improvement or a tighter net. ## 1995 — Automatic declassification sets a clock on secrecy President Clinton's Executive Order 12958 declared that most classified records would be automatically declassified after twenty-five years unless an agency made a case to keep them sealed. For the first time secrecy carried a default expiry date rather than lasting forever. It released hundreds of millions of pages, though agencies fought to exempt and even reclassify some of them. ## 1997 — The Moynihan Commission calls secrecy a form of regulation A bipartisan commission led by Senator Daniel Patrick Moynihan reported on the runaway growth of government secrecy after the Cold War. Its central insight was that secrecy is a form of regulation, a hidden system of rules that decides what citizens may know, and that it should be weighed and limited like any other regulation. The report documented how over-classification wastes money and weakens the very security it claims to protect. ## 2004 — The 9/11 Commission blames a culture of secrecy Investigating the September 11 attacks, the commission found that a habit of hoarding secrets kept agencies from sharing warnings that might have been pieced together. Its report argued that over-classification and a need-to-know reflex had real security costs, not just democratic ones. The finding turned the usual argument on its head: too much secrecy could make a country less safe. ## 2010 — Congress tries to curb over-classification The Reducing Over-Classification Act ordered agencies to train staff and audit their own classification, an official admission that too much was being stamped secret. Government reviews had estimated that a large share of classification decisions were wrong or needless, at a cost of billions of dollars a year. Whether the law changed the deep habit of over-classifying remains widely doubted. ## June 2013 — Mass leaks reopen the fight over classification Chelsea Manning's release of military and diplomatic files in 2010 and Edward Snowden's disclosure of mass surveillance in 2013 dumped huge volumes of classified material into public view and reignited the argument over what should be secret at all. Later cases of senior officials mishandling classified documents raised a further charge, that the rules fall hardest on leakers and lightest on the powerful. Supporters called the leakers whistleblowers serving the public; the government called them criminals who endangered lives.