chapter III

.[C8-163] Assistant Chief Batchelor of the Dallas police noted the absence of any formal statement by the Secret Service of specific work assigned to the police and suggested the desirability of such a statement.[C8-164] Agent Lawson agreed that such a procedure would assist him and other agents in fulfilling their responsibilities as advance agents.[C8-165]

_Check of buildings along route of motorcade._--Agent Lawson did not arrange for a prior inspection of buildings along the motorcade route, either by police or by custodians of the buildings, since it was not the usual practice of the Secret Service to do so.[C8-166] The Chief of the Service has provided the Commission a detailed explanation of this policy:

Except for inauguration or other parades involving foreign dignitaries accompanied by the President in Washington, it has not been the practice of the Secret Service to make surveys or checks of buildings along the route of a Presidential motorcade. For the inauguration and certain other parades in Washington where the traditional route is known to the public long in advance of the event, buildings along the route can be checked by teams of law enforcement officers, and armed guards are posted along the route as appropriate. But on out-of-town trips where the route is decided on and made public only a few days in advance, buildings are not checked either by Secret Service agents or by any other law enforcement officers at the request of the Secret Service. With the number of men available to the Secret Service and the time available, surveys of hundreds of buildings and thousands of windows is not practical.

In Dallas the route selected necessarily involved passing through the principal downtown section between tall buildings. While certain streets thought to be too narrow could be avoided and other choices made, it was not practical to select a route where the President could not be seen from roofs or windows of buildings. At the two places in Dallas where the President would remain for a period of time, Love Field and the Trade Mart, arrangements were made for building and roof security by posting police officers where appropriate. Similar arrangements for a motorcade of ten miles, including many blocks of tall commercial buildings is not practical. Nor is it practical to prevent people from entering such buildings, or to limit access in every building to those employed or having business there. Even if it were possible with a vastly larger force of security officers to do so, many observers have felt that such a procedure would not be consistent with the nature and purpose of the motorcade to let the people see their President and to welcome him to their city.

In accordance with its regular procedures, no survey or other check was made by the Secret Service, or by any other law enforcement agency at its request, of the Texas School Book Depository Building or those employed there prior to the time the President was shot.[C8-167]

This justification of the Secret Service’s standing policy is not persuasive. The danger from a concealed sniper on the Dallas trip was of concern to those who had considered the problem. President Kennedy himself had mentioned it that morning,[C8-168] as had Agent Sorrels when he and Agent Lawson were fixing the motorcade route.[C8-169] Admittedly, protective measures cannot ordinarily be taken with regard to all buildings along a motorcade route. Levels of risk can be determined, however, as has been confirmed by building surveys made since the assassination for the Department of the Treasury.[C8-170] An attempt to cover only the most obvious points of possible ambush along the route in Dallas might well have included the Texas School Book Depository Building.

Instead of such advance precautions, the Secret Service depended in part on the efforts of local law enforcement personnel stationed along the route. In addition, Secret Service agents riding in the motorcade were trained to scan buildings as part of their general observation of the crowd of spectators.[C8-171] These substitute measures were of limited value. Agent Lawson was unable to state whether he had actually instructed the Dallas police to scan windows of buildings lining the motorcade route, although it was his usual practice to do so.[C8-172] If such instructions were in fact given, they were not effectively carried out. Television films taken of parts of the motorcade by a Dallas television station show the foot patrolmen facing the passing motorcade, and not the adjacent crowds and buildings, as the procession passed.[C8-173]

Three officers from the Dallas Police Department were assigned to the intersection of Elm and Houston during the morning of November 22 prior to the motorcade.[C8-174] All received their instructions early in the morning from Capt. P. W. Lawrence of the traffic division.[C8-175] According to Captain Lawrence:

I then told the officers that their primary duty was traffic and crowd control and that they should be alert for any persons who might attempt to throw anything and although it was not a violation of the law to carry a placard, that they were not to tolerate any actions such as the Stevenson incident and arrest any person who might attempt to throw anything or try to get at the President and his party; paying particular attention to the crowd for any unusual activity. I stressed the fact that this was our President and he should be shown every respect due his position and that it was our duty to see that this was done.[C8-176]

Captain Lawrence was not instructed to have his men watch buildings along the motorcade route and did not mention the observation of buildings to them.[C8-177] The three officers confirm that their primary concern was crowd and traffic control, and that they had no opportunity to scan the windows of the Depository or any other building in the vicinity of Elm and Houston when the motorcade was passing. They had, however, occasionally observed the windows of buildings in the area before the motorcade arrived, in accordance with their own understanding of their function.[C8-178]

As the motorcade approached Elm Street there were several Secret Service agents in it who shared the responsibility of scanning the windows of nearby buildings. Agent Sorrels, riding in the lead car, did observe the Texas School Book Depository Building as he passed by, at least for a sufficient number of seconds to gain a “general impression” of the lack of any unusual activity.[C8-179] He was handicapped, however, by the fact that he was riding in a closed car whose roof at times obscured his view.[C8-180] Lawson, also in the lead car, did not scan any buildings since an important part of his job was to look backward at the Presidents car.[C8-181] Lawson stated that he “was looking back a good deal of the time, watching his car, watching the sides, watching the crowds, giving advice or asking advice from the Chief and also looking ahead to the known hazards like overpasses, underpasses, railroads, et cetera.”[C8-182] Agent Roy H. Kellerman, riding in the front seat of the Presidential car, stated that he scanned the Depository Building, but not sufficiently to be alerted by anything in the windows or on the roof.[C8-183] The agents in the followup car also were expected to scan adjacent buildings. However, the Commission does not believe that agents stationed in a car behind the Presidential car, who must concentrate primarily on the possibility of threats from crowds along the route, provide a significant safeguard against dangers in nearby buildings.

_Conduct of Secret Service agents in Fort Worth on November 22._--In the early morning hours on November 22, 1963, in Fort Worth, there occurred a breach of discipline by some members of the Secret Service who were officially traveling with the President. After the President had retired at his hotel, nine agents who were off duty went to the nearby Fort Worth Press Club at midnight or slightly thereafter, expecting to obtain food; they had had little opportunity to eat during the day.[C8-184] No food was available at the Press Club. All of the agents stayed for a drink of beer, or in several cases, a mixed drink. According to their affidavits, the drinking in no case amounted to more than three glasses of beer or 1½ mixed drinks, and others who were present say that no agent was inebriated or acted improperly. The statements of the agents involved are supported by statements of members of the Fort Worth press who accompanied or observed them and by a Secret Service investigation.[C8-185]

According to their statements, the agents remained at the Press Club for periods varying from 30 minutes to an hour and a half, and the last agent left the Press Club by 2 a.m.[C8-186] Two of the nine agents returned to their rooms. The seven others proceeded to an establishment called the Cellar Coffee House, described by some as a beatnik place and by its manager as “a unique show place with continuous light entertainment all night [serving] only coffee, fruit juices and no hard liquors or beer.” [C8-187] There is no indication that any of the agents who visited the Cellar Coffee House had any intoxicating drink at that establishment.[C8-188] Most of the agents were there from about 1:30 or 1:45 a.m. to about 2:45 or 3 a.m.; one agent was there from 2 until 5 a.m.[C8-189]

The lobby of the hotel and the areas adjacent to the quarters of the President were guarded during the night by members of the midnight to 8 a.m. shift of the White House detail. These agents were each relieved for a half hour break during the night.[C8-190] Three members of this shift separately took this opportunity to visit the Cellar Coffee House.[C8-191] Only one stayed as long as a half hour, and none had any beverage there.[C8-192] Chief Rowley testified that agents on duty in such a situation usually stay within the building during their relief, but that their visits to the Cellar were “neither consistent nor inconsistent” with their duty.[C8-193]

Each of the agents who visited the Press Club or the Cellar Coffee House (apart from the three members of the midnight shift) had duty assignments beginning no later than 8 a.m. that morning. President Kennedy was scheduled to speak across the street from his hotel in Fort Worth at 8:30 a.m.,[C8-194] and then at a breakfast, after which the entourage would proceed to Dallas. In Dallas, one of the nine agents was assigned to assist in security measures at Love Field, and four had protective assignments at the Trade Mart. The remaining four had key responsibilities as members of the complement of the followup car in the motorcade. Three of these agents occupied positions on the running boards of the car, and the fourth was seated in the car.[C8-195]

The supervisor of each of the off-duty agents who visited the Press Club or the Cellar Coffee House advised, in the course of the Secret Service investigation of these events, that each agent reported for duty on time, with full possession of his mental and physical capabilities and entirely ready for the performance of his assigned duties.[C8-196] Chief Rowley testified that, as a result of the investigation he ordered, he was satisfied that each of the agents performed his duties in an entirely satisfactory manner, and that their conduct the night before did not impede their actions on duty or in the slightest way prevent them from taking any action that might have averted the tragedy.[C8-197] However, Chief Rowley did not condone the action of the off-duty agents, particularly since it violated a regulation of the Secret Service, which provides:

_Liquor, use of._--a. Employees are strictly enjoined to refrain from the use of intoxicating liquor during the hours they are officially employed at their post of duty, or when they may reasonably expect that they may be called upon to perform an official duty. During entire periods of travel status, the special agent is officially employed and should not use liquor, until the completion of all of his official duties for the day, after which time a very moderate use of liquor will not be considered a violation. However, all members of the White House Detail and special agents cooperating with them on Presidential and similar protective assignments are considered to be subject to call for official duty at any time while in travel status. Therefore, the use of intoxicating liquor of any kind, including beer and wine, by members of the White House Detail and special agents cooperating with them, or by special agents on similar assignments, while they are in a travel status, is prohibited.[C8-198]

The regulations provide further that “violation or slight disregard” of these provisions “will be cause for removal from the Service.”[C8-199]

Chief Rowley testified that under ordinary circumstances he would have taken disciplinary action against those agents who had been drinking in clear violation of the regulation. However, he felt that any disciplinary action might have given rise to an inference that the violation of the regulation had contributed to the tragic events of November 22. Since he was convinced that this was not the case, he believed that it would be unfair to the agents and their families to take explicit disciplinary measures. He felt that each agent recognized the seriousness of the infraction and that there was no danger of a repetition.[C8-200]

The Commission recognizes that the responsibilities of members of the White House detail of the Secret Service are arduous. They work long, hard hours, under very great strain, and must travel frequently. It might seem harsh to circumscribe their opportunities for relaxation. Yet their role of protecting the President is so important to the well-being of the country that it is reasonable to expect them to meet very high standards of personal conduct, so that nothing can interfere with their bringing to their task the finest qualities and maximum resources of mind and body. This is the salutary goal to which the Secret Service regulation is directed, when it absolutely forbids drinking by any agent accompanying the President on a trip. Nor is this goal served when agents remain out until early morning hours, and lose the opportunity to get a reasonable amount of sleep. It is conceivable that those men who had little sleep, and who had consumed alcoholic beverages, even in limited quantities, might have been more alert in the Dallas motorcade if they had retired promptly in Fort Worth. However, there is no evidence that these men failed to take any action in Dallas within their power that would have averted the tragedy. As will be seen, the instantaneous and heroic response to the assassination of some of the agents concerned was in the finest tradition of Government service.

_The motorcade in Dallas._--Rigorous security precautions had been arranged at Love Field with the local law enforcement authorities by Agents Sorrels and Lawson. These precautions included reserving a ceremonial area for the Presidential party, stationing police on the rooftops of all buildings overlooking the reception area, and detailing police in civilian clothes to be scattered throughout the sizable crowd.[C8-201] When President and Mrs. Kennedy shook hands with members of the public along the fences surrounding the reception area, they were closely guarded by Secret Service agents who responded to the unplanned event with dispatch.[C8-202]

As described in