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STRATEGIC SERVICES
DEC
DSB RCPROD
71
Washington, D. C.
1 December 1943
William «L Donovan
Director
Page
SECTION I — GENERAL PROVISIONS
1. PURPOSE
2. DEFINITION
3. OBJECTIVES
4. FUNCTIONS
5. COORDINATION OF STRATEGIC
SERVICES PROGRAMS
6. FACTORS
7. APPLICATION
SECTION II —ORGANIZATION
8. CONTROL 10
9. AGENCIES AND COMMANDS INVOLVED . . 10
10. OFFICE OF STRATEGIC SERVICES . . .10
11. ORGANIZATION WITHIN THEATERS . . . 14
12. ORGANIZATION WITHIN NEUTRAL
COUNTRIES 15
SECTION IV —PLANNING
15. DIRECTIVE 17
16. PLANS 17
17. BASIC AND SPECIAL PLANS AND PROGRAMS 17
18. OPERATIONAL PLANS 18
19. STUDIES AND SURVEYS 19
SECTION V — OPERATIONS
20. GENERAL 19
21. MORALE OPERATIONS 20
22. SPECIAL OPERATIONS . . . 21
23. POLITICAL PRESSURES . . . 21
24. ECONOMIC PRESSURES . . . 22
25. CONTROL AND COORDINATION . 22
26. COMMUNICATION FACILITIES 23
27. SECURITY 23
31. TRAINING 25
34. TRANSPORTATION 31
STRATEGIC
(as defined by JCS 155/11/D)
SECTION II — ORGANIZATION
8. CONTROL — The organization for the conduct of Stra
tegic Services must be such as will facilitate the concentra
tion of all its activities to one end: furtherance of actual
or planned military operations in the winning of the war. To
this end a central agency cognizant of actual or planned mili
tary operations must have authority not only to approve
these plans, but to insure control of their operations. The
Joint Chiefs of Staff is the central agency charged with this
responsibility.
9. AGENCIES AND COMMANDS INVOLVED — The prin
cipal agencies and commanders involved in the conduct of
Strategic Services are:
a. OFFICE OF STRATEGIC SERVICES, an agency of the Joint
Chiefs of Staff;
b. THEATER COMMANDERS, subordinates of the Joint
Chiefs of Staff;
c. STATE DEPARTMENT, concerned with exerting political
pressures, particularly within friendly and neutral coun
tries;
d. OFFICE OF ECONOMIC WARFARE (OFEA), TREASURY
DEPARTMENT, concerned with exerting economic pressures,
particularly within friendly and neutral countries.
10. OFFICE OF STRATEGIC SERVICES
a. FUNCTIONS: The functions of the Office of Strategic
Services are covered in paragraph 4, section I, of this
manual.
b. ORGANIZATION:
(1) The Office of Strategic Services consists of a
Director, appointed by the President, a Planning Group,
an Advisory Committee, headquarters establishments
for intelligence, operations, recruiting, training, and
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supply, and field administrative and operating person
nel within theaters and within neutral areas.
(2) The Planning Group
/ The composition and functions of the Planning
Group and its Advisory Committee are covered in para
graph 5, section I, of this manual.
(3) Headquarters Establishments
The headquarters establishments consist of the
Assistant Director, the Deputy Directors and other staff
officers, the services and supply branches, an intelli
gence service, the branches concerned with strategic
services operations, and a number of other branches and
offices, including a Communications Branch, a Schools
and Training Branch, a Research and Development Of
fice, a Headquarters and Headquarters Detachment, a
Naval Command, a Field Photographic Branch, and the
Planning Staff.
(a) The Services and Supply Branches include
Procurement and Supply, Administration, Budget
and Finance, Personnel Procurement, Civilian Per
sonnel, and Medical Service.
(b) The Intelligence Service includes:
(1) The Secret Intelligence Branch which is
responsible for:
(a) Collection of secret intelligence in
all areas other than the Western Hemisphere
by means of espionage and its evaluation
and dissemination to authorized agencies;
(b) Establishment and maintenance of
direct liaison with Allied secret intelligence
agencies;
(c) Obtaining information from under
ground groups by direct contact or other
means.
(2) The X-2 Branch: The functions of this
branch pertain to counter-espionage activities.
(3) The Research and Analysis Branch
With respect to the responsibilities of
intelligence for the
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planning and execution of appr-cwied strategic
services operations, and (2) furnish such intel
ligence as is requested by agencies of the Joint
Chiefs of Staff, the armed services, and other
authorized Government agencies. The Research
and Analysis Branch is responsible for the fol
lowing, with no geographical restrictions placed
on its functions:
(a) Accumulation, evaluation, and anal
ysis of political, psychological, sociological,
economic, topographic, and military infor
mation required for the above;
(b) Preparation of such studies em
bracing the foregoing factors as may be
required;
(c) Preparation of the assigned sec
tions of Joint Army and Navy Intelligence
Studies (JANIS), together with such maps,
charts, and appendices as may be required
to accompany these sections;
(d) Preparation of such maps, charts,
and illustrations as may be requested by the
agencies of the Joint Chiefs of Staff and
authorized agencies of the War and Navy
Departments.
(4) The Foreign Nationalities Branch which
is responsible for:
(a) Maintaining, in consultation with
the State Department, contact with foreign
nationality groups and individuals in the
United States for the purpose of obtaining
information;
(b) Analyzing, indexing, and processing
the information in forms appropriate for
dissemination to the strategic services plan
ning and operating agencies of the OSS, the
State Department and other agencies of the
Government requiring the information.
(c) Strategic Services Operations includes the
following branches:
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d
(],) TTie MorulqiOperdfpns Branch which is
responsible for the exectftitefo>of all forms of
morale subversion by divers means including:
False rumors, "freedom stations," false
leaflets and false documents, the organiza
tion and support of fifth column activities by
grants, trained personnel and supplies, and
the use of agents, all for the purpose of
creating confusion, division, and undermin
ing the morale of the enemy.
(2) The Special Operations Branch which is
responsible for:
(a) Sabotage;
(b) Direct contact with and support of
underground resistance groups;
(c) The conduct of special operations
not assigned to other Government agencies
and not under direct control of the theater
or area commander;
(d) The organization, equipment, and
training of such individuals or organizations
as may be required for special operations not
assigned to other Government agencies.
(3) Operational Groups Branch:
This Branch is responsible for the or
ganization and conduct of guerrilla warfare.
Personnel to be provided for guerrilla warfare
is limited to organizers, fomenters and opera
tional nuclei.
(d) Other branches and offices include:
(1) The Communications Branch, which is
responsible for the planning, organization, and
operation of essential communications required
for field and training activities in connection
with approved projects. Existing communication
facilities are utilized wherever possible.
(2) The Schools and Training Branch,
which is responsible for providing and operating
facilities for the instruction and training for all
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et In
telligence, Strategic Services Operations, Com
munications, and Maritime operations and
tactics.
(3) The Research and Development Office,
which is responsible for the progressive and ord
erly development of operating procedure and the
characteristics of special weapons and special
equipment for special operations not assigned or
pertinent to other U.S. Government agencies.
(4) Headquarters and Headquarters De
tachment, OSS, and the OSS Naval Command,
which are responsible for administration and
supply of the Army, Navy, and Marine Corps per
sonnel of OSS assigned to these units.
(5) The Field Photographic Branch, which
is responsible for:
(a) Producing motion and still pictures
of strategic and confidential subjects;
(b) Preparation of relief studies, mod
els, maps, charts, and other visual presenta
tion media, and presentation of assigned
sections of Joint Army and Navy Intelligence
Studies (JANIS).
(6) The Planning Staff, which assists the
Director and the Planning Group in the develop
ment of Strategic Services plans, programs, and
doctrine.
11. ORGANIZATION WITHIN THEATERS
a. Strategic Services operations within organized thea
ters or areas are subject to the direct control of the com
mander concerned. Within organized theaters or areas,
officers and agents of the Office of Strategic Services are
under the direct control of the commander concerned, who
must be informed of all plans or projects to be carried out
within the theater or area and their current status. They
may not engage in any activity which has not been approv
ed by the commander concerned.
b. The Strategic Services Organization within theaters
consists of (subject to the approval of the theater com
jyy
mander): a special staff section of trfe^HSSfW command
er's staff; establishments for training, communications,
and supply; field administrative and operating personnel.
(1) The Special Staff Section of the theater com
mander's staff is designated "The Strategic Services
Section." Its chief is designated "The Strategic Services
Officer" and is the principal advisor and representative
of the theater commander on matters pertaining to
Strategic Services. This special staff section must be so
organized as to effectively assist the theater commander
in the planning, organization, coordination, and control
of all Strategic Services activities within the theater.
The organization should, in general, follow that set
forth in paragraph 10-b-(3) above, for the Office of
Strategic Services. It should include only those
branches applicable to operations within the theater.
(2) Such schools and training establishments are
organized within the theater as are necessary to meet its
training requirements.
(3) A communications base is organized within each
theater to provide the necessary communications be
tween the theater headquarters and the field operating
personnel.
(4) The Strategic Services activities within the thea
ter are performed by field operatives who, in general, are
administered, supplied, and controlled by such number
of administrative headquarters as may be necessary.
12. ORGANIZATION WITHIN NEUTRAL COUNTRIES
a. Strategic Services operations and activities (except
economic and political pressures) within neutral countries
are conducted by an organization controlled, administered,
and supplied by the Office of Strategic Services. This organ
ization requires a carefully selected and trained officer or
civilian who is familiar with all phases of Strategic Services
and who is also thoroughly familiar with conditions within
the neutral country. He is designated as "Chief of OSS
Mission."
b. The political and economic phases of Strategic Serv
ices within neutral countries are conducted by representa
tives of the State Department and the Foreign Economic
Administration (FEA), respectively.
13. IMPORTANCE
SECTION IV —PLANNING
15. DIRECTIVE
The Directive of the Joint Chiefs of Staff charges the
Office of Strategic Services with the planning, development,
and execution of Strategic Services for the Joint Chiefs of
Staff and the development of doctrine covering such services.
It charges the Planning Group, Office of Strategic Services,
with supervising and coordinating the planning and execu
tion of the Strategic Services programs.
16. PLANS
a. Plans covering the exploitation of Strategic Services
factors in furtherance of actual or planned military opera
tions must be developed for all enemy, enemy-occupied,
and neutral areas.
b. Such plans should include not only the basic and
special plans and programs for these areas, but detailed
plans covering operations in the field.
c. These plans must be based upon adequate and up-to
date intelligence and upon studies and a careful analysis
of factors made by trained experts who are familiar with
the country and its population.
17. BASIC AND SPECIAL PLANS AND PROGRAMS
a. The Basic and Special Plans and Strategic Services
programs are prepared under direction and supervision
of the Office of Strategic Services Planning Group, by the
Planning Staff, assisted by the Branch Planning Sections
of SI, X-2, MO, and SO, and by FN, R&A, and other
interested branches.
b. All orthese plans and programs for Strategic Services
activities must be integrated with military and naval pro
grams by the Planning Group. Basic Plans, after approval
by the Director of Strategic Services, are submitted to the
Joint Chiefs of Staff through the Joint Staff Planners for
final approval. Special Plans and Strategic Services Pro
grams supplementary to Basic Plans, are forwarded by
the Director of Strategic Services direct to the theater
commander concerned (or Chief of OSS Mission in neutral
areas) for his consideration. All Strategic Services activi
ties within OSS and in the field will be based upon Strategic
Services programs prepared and agreed to by OSS in
Washington, and the theater or area commander or Chief
of OSS Mission in neutral areas. Such programs will set
forth the definite objectives for Strategic Services activi
ties, in order of priority, for each theater, area, or country,
and when agreed upon by OSS, Washington, and the field
will become the over-all priority program of the OSS or
ganization in the theater or neutral area and shall con
stitute its primary objectives until changed by the theater
commander or by OSS with the approval of the theater
commander.
c. In order to assist OSS, theater commanders, and
Chiefs of OSS Missions in the implementation of Strategic
Services plans and programs, Implementation Studies,
covering supporting data, are prepared and furnished to
all concerned.
SECTION V —OPERATIONS
20. GENERAL
a. In view of the global scope of the war, Strategic
Services operations should be initiated for all areas from
both the over-all point of view and from the point of view of
providing direct support to our projected or actual military
operations.
b. From the over-all point of view, Strategic Services
operations must be aimed toward over-all results. To this
end, close coordination of the programs of our Allies,
theaters, and neutral areas is essential.
c. From the point of view of direct support of military
operations, Strategic Services activities must aim toward
results which will aid and further our military operations
within a particular theater. Such activities will include:
(1) Intensification of intelligence and counter-intel
ligence;
(2) Organization for and implementation of timed,
active morale subversion;
(3) Organization of sabotage groups and the conduct
of sabotage activities in accordance with the program
prescribed by the theater commander;
(4) Organization of guerrilla groups for open resist
ance and for activities in support of military operations
when directed by the theater commander;
(5) Organization of fifth column to operate when
directed by the theater commander;
(6) Providing special personnel to act as interpret
ers, guides, for marking beaches, and for similar activ
ities to aid the invading forces as required by theater
commanders;
(7) Providing political, economic, and emergency
assistance at the time of and immediately after invasion.
SECTION VI — COMMUNICATIONS
26. COMMUNICATION FACILITIES
a. A proper system of communication facilities is an
essential part of the operations conducted by the Office of
Strategic Services.
b. Existing Army, Navy, and commercial facilities are
used for communications between the Office of Strategic
Services in Washington, the theater commander, and the
base station within the theater.
c. To meet technical and security requirements, a spe
cial communication system, with special equipment, is
necessary within theaters and areas for communication
with agents in the field. This special system utilizes special
radio equipment both at the base and with the agents in
the field. The agent sets are small, low-powered, and capa
ble of easy concealment. Base station equipment should
be supplemented by mobile and portable types capable of
being operated from different locations, when necessary, to
receive reports from agents.
d. The Office of Strategic Services shall be responsible
for the planning, organization, and operation of essential
communications required for field and training activities
in connection with approved projects.
27. SECURITY
In order to provide maximum security, very careful
training must be given all agents and operators of this special
equipment. The agents must be carefully selected and train
ed in the safeguards of operating procedure essential to com
municating in dangerous territory. They must be taught
cover and the use and protection of codes and ciphers and
the type, form, and numbers of reports. They must under
stand thl§^ejjEm^s techniques of detection and the precau
tions to tal^^g&inst them. They must be schooled in the
system of Iteration by "cells" under whiclijthe detection of
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