TheUnited Kingdom – United States of America Agreement (UKUSA,/juːkuːˈsɑː/yoo-koo-SAH)[1][note 1] is a multilateral agreement for cooperation insignals intelligence betweenAustralia,Canada,New Zealand, theUnited Kingdom, and theUnited States. The alliance of intelligence operations is also known as theFive Eyes.[3][4][5] In classification markings this is abbreviated as FVEY, with the individual countries being abbreviated as AUS, CAN, NZL, GBR, and USA, respectively.
Emerging from an informal agreement related to the 1941Atlantic Charter, thesecret treaty was renewed with the passage of the1943 BRUSA Agreement, before being officially enacted on 5 March 1946 by the United Kingdom and the United States. In the following years, it was extended to encompass Canada, Australia, and New Zealand. Other countries, known as "third parties", such asWest Germany, thePhilippines, and severalNordic countries, also joined the UKUSA community in associate capacities, although they are not part of the mechanism for automatic sharing of intelligence that exists between the Five Eyes.[6]
Much of the sharing of information is performed via the ultra-sensitiveSTONEGHOST network, which has been claimed to contain "some of the Western world's most closely guarded secrets".[7] Besides laying down rules for intelligence sharing, the agreement formalized and cemented the "Special Relationship" between the UK and the US.[8]
Due to its status as a secret treaty, its existence was not known to theprime minister of Australia until 1973,[9] and it was not disclosed to the public until 2005.[10] On 25 June 2010, for the first time in history, the full text of the agreement was publicly released by the United Kingdom and the United States, and can now be viewed online.[11] Shortly after its release, the seven-page UKUSA Agreement was recognized byTime magazine as one of theCold War's most important documents, with immense historical significance.[10]
Theglobal surveillance disclosure byEdward Snowden has shown that the intelligence-sharing activities between theFirst World allies of the Cold War are rapidly shifting into the digital realm of theInternet.[12][13]
The parties agree to the exchange of the products of the following operations relating to foreign communications:-
- Collection of traffic.
- Acquisition of communications documents and equipment.
- Traffic analysis.
- Cryptanalysis.
- Decryption and translation.
- Acquisition of information regarding communications organizations, procedures, practices and equipment.
The agreement originated from a ten-page 1943 British–US Communication Intelligence Agreement,BRUSA.[14] The UKUSA Agreement connected the signal intercept networks of the UKGovernment Communications Headquarters (GCHQ) and the USNational Security Agency (NSA) at the beginning of theCold War.[15] The document was signed on 5 March 1946 by Colonel Patrick Marr-Johnson for the UK's London Signals Intelligence Board and Lieutenant GeneralHoyt Vandenberg for the US State–Army–Navy Communication Intelligence Board. Although the original agreement states that the exchange would not be "prejudicial to national interests", the United States often blocked information sharing fromCommonwealth countries. The full text of the agreement was released to the public on 25 June 2010.[16]
The "Five Eyes" term has its origins as a shorthand for a "AUS/CAN/NZ/UK/US EYES ONLY" classification level.[17]
Under the agreement, the GCHQ and the NSA shared intelligence on theSoviet Union, thePeople's Republic of China, and severalEastern Bloc countries (known as Exotics).[18] The network was expanded in the 1960s into theEchelon collection and analysis network.[8]
The treaty was extended to include Canada (1948), Australia (1956) and New Zealand (1956). In 1955, the agreement was updated to designate Canada, Australia and New Zealand as "UKUSA-collaboratingCommonwealth countries".[16] Other countries that joined as "third parties" wereNorway (1952),Denmark (1954) and West Germany (1955).
In the aftermath of the1973 Murphy raids on the headquarters of theAustralian Security Intelligence Organisation (ASIO), the existence of the UKUSA Agreement was revealed to Australia's Prime MinisterGough Whitlam. After learning about the agreement, Whitlam discovered thatPine Gap, a secret surveillance station close toAlice Springs,Northern Territory, had been operated by the USCentral Intelligence Agency (CIA).[19][20][21][22]
At the height of the1975 Australian constitutional crisis, the use and control of Pine Gap by the CIA was strongly opposed by Whitlam, who fired the chief of the ASIO before being dismissed as prime minister.[23]
The existence of several intelligence agencies of theFive Eyes was not revealed until the following years:
In 1999, the Australian government acknowledged that it "does co-operate with counterpart signals intelligence organisations overseas under the UKUSA relationship."[31][32]
The existence of the UKUSA Agreement, however, was not publicly revealed until 2005.[10] The contents of the agreement were officially disclosed to the public on 25 June 2010. Four days later, the agreement was described byTime magazine as one of the "most important documents in the history of theCold War."[10]
In July 2013, as part of the2013 Edward Snowden revelations, it emerged that the NSA is paying GCHQ for its services, with at least £100 million of payments made between 2010 and 2013.[33]
On 11 September 2013,The Guardian released aleaked document provided by Edward Snowden which reveals a similar agreement between the NSA and Israel'sUnit 8200.[34]
According toThe Sydney Morning Herald, Australia operates clandestine surveillance facilities at its embassies "without the knowledge of most Australian diplomats". These facilities are part of an international espionage program known asSTATEROOM.[35]
Although the UKUSA alliance is often associated with theECHELON system, processed intelligence is reliant on multiple sources of information and the intelligence shared is not restricted tosignals intelligence. The following table provides an overview of the government agencies involved and their respective responsibilities within the "Five Eyes" community:[17]
| Country | Signals intelligence | Defence intelligence | Security intelligence | Human intelligence |
|---|---|---|---|---|
 United Kingdom | Government Communications Headquarters (GCHQ) | Defence Intelligence (DI) | Security Service a.k.a. MI5 | Secret Intelligence Service (SIS) a.k.a. MI6 |
 United States | National Security Agency (NSA) | Defense Intelligence Agency (DIA) | Federal Bureau of Investigation (FBI) | Central Intelligence Agency (CIA) |
 Australia | Australian Signals Directorate (ASD) | Defence Intelligence Organisation (DIO) | Australian Security Intelligence Organisation (ASIO) | Australian Secret Intelligence Service (ASIS) |
 Canada | Communications Security Establishment (CSE) | Canadian Forces Intelligence Command (CFINTCOM) | Canadian Security Intelligence Service (CSIS) | |
 New Zealand | Government Communications Security Bureau (GCSB) | Directorate of Defence Intelligence and Security (DDIS) | New Zealand Security Intelligence Service (NZSIS) | |
Although precise assignments are classified, it is generally known that each member of the UKUSA alliance takes lead responsibility for intelligence collection and analysis in different parts of the globe.
TheFive Eyes (often abbreviated asFVEY) are anintelligence alliance comprising Australia, Canada, New Zealand, the United Kingdom and the United States. These countries are bound by the multilateral UKUSA Agreement, a treaty for joint cooperation insignals intelligence.[17][36]
Australia monitorsSouth Asia andEast Asia.[17]
Canada's geographical proximity to theSoviet Union provided considerable eavesdropping advantages during theCold War. Canada continues to monitor the Russian and Chinese interior while managing intelligence assets inLatin America.[17]
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In addition toSoutheast Asia, New Zealand is responsible for the westernPacific[17] and maintains listening posts in theSouth Island atWaihopai Valley just south-west ofBlenheim, and on theNorth Island atTangimoana.
Europe,European Russia, Middle East, and Hong Kong.[17]
The US is focused on theMiddle East, Russia, and China, in addition to theCaribbean andAfrica.[17]
The "Five Eyes" community is part of an extensive alliance ofWestern countries sharingsignals intelligence with each other. These allied countries includeNATO members, other European countries such as Sweden, and allies in the Pacific, in particularSingapore andSouth Korea.[17][6]
In the 1950s several Nordic countries joined the community as "third party" participants. They were soon followed by Denmark (1954) andWest Germany (1955).[6][38]
According toEdward Snowden, the NSA has a "massive body" called the Foreign Affairs Directorate that is responsible for partnering with otherWestern allies such asIsrael.[39]
Unlike the "second party" members (that is, the Five Eyes themselves), "third party" partners are not automatically exempt from intelligence targeting. According to an internal NSA document leaked by Snowden, "We (the NSA) can, and often do, target the signals of most 3rd party foreign partners."[40]
The Five Eyes are cooperating with various 3rd Party countries in at least two groups:
Germany is reportedly interested in moving closer to the inner circle: an internal GCHQ document from 2009 said that the "Germans were a little grumpy at not being invited to join the 9-Eyes group." Germany may even wish to join Five Eyes.[43] Referring to Five Eyes, former French PresidentFrançois Hollande has said that his country is "not within that framework and we don't intend to join."[44] According to a former top US official, "Germany joining would be a possibility, but not France – France itself spies on the US far too aggressively for that."[45]
 National Security Agency surveillance |
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 Map of global NSA data collection as of 2007[update], with countries subject to the most data collection shown in red |
Programs
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During the2013 NSA leaks Internet spying scandal, the surveillance agencies of the "Five Eyes" have been accused of intentionally spying on one another's citizens and willingly sharing the collected information with each other, allegedly circumventing laws preventing each agency from spying on its own citizens.[46][47][48]
The 2013 NSA leaks are not entirely new, but rather, they are a confirmation of earlier disclosures about the UK-US espionage alliance. For example, the British newspaperThe Independent reported back in 1996 that the USNational Security Agency "taps UK phones" at the request of the British intelligence agencyMI5, thus allowing British agents to evade restrictive limitations on domestic telephone tapping.[49]
The mutual surveillance and sharing of information between allies of the UK and US resurfaced again during the2013 mass surveillance disclosures. As described by the news magazineDer Spiegel, this was done to circumvent domestic surveillance regulations:
Britain's GCHQ intelligence agency can spy on anyone but British nationals, the NSA can conduct surveillance on anyone but Americans, and Germany's BND (Bundesnachrichtendienst) foreign intelligence agency can spy on anyone but Germans. That's how a matrix is created of boundless surveillance in which each partner aids in a division of roles.They exchanged information. And they worked together extensively. That applies to the British and the Americans, but also to the BND, which assists the NSA in its Internet surveillance.[50]
In 2013, Canadian federal judgeRichard Mosley strongly rebuked theCanadian Security Intelligence Service (CSIS) for outsourcing its surveillance of Canadians to overseas partner agencies. A 51-page ruling says that the CSIS and other Canadian federal agencies are illegally enlisting US and British allies inglobal surveillance dragnets, while keeping domestic federal courts in the dark.[51]
The following documents were jointly released by the NSA and the GCHQ in 2010:
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The following documents were leaked byEdward Snowden during the course of the2013 Global surveillance disclosure:
The military's fears were well-founded, given Delisle had access to terabytes of some of the Western world's most closely guarded secrets. He operated a computer system called Stone Ghost, which links the intelligence services of the Five Eyes: the United States, Britain, Canada, Australia and New Zealand.
The files contain details of the recently avowed UKUSA Agreement – the top secret, post-war arrangement for sharing intelligence between the United States and the UK. Signed by representatives of the London Signals Intelligence Board and its American counterpart in March 1946, the UKUSA Agreement is without parallel in the Western intelligence world and formed the basis for co-operation between the two countries throughout the Cold War.
A partnership with various telecommunications industries has secured access to the internet for the UKUSA signals agencies. All traffic on the internet and via emails is reportedly captured and stored.
Its existence was allegedly so secret that prime ministers were unaware of the agreement until 1973 – the same year the Commonwealth raided ASIO
GCHQ's cover was first blown in 1976 by an article, The Eavesdroppers, published by the London magazine, Time Out.
But Justice Hope also investigated the Joint Intelligence Organisation (JIO), the Defence Signals Division (DSD) and the Australian Secret Intelligence Service (ASIS) whose existence was not officially confirmed until 1977.
In 1977, the then Prime Minister, Robert Muldoon, approved the formation of the GCSB, but its functions and activities were kept secret. In 1980 it was decided that the existence of the GCSB could be disclosed on a limited basis, leading to the first briefings of the Cabinet and the Leader of the Opposition.
The system was established under a secret 1947 "UKUSA Agreement," which brought together the British and American systems, personnel and stations. To this was soon joined the networks of three British commonwealth countries, Canada, Australia and New Zealand. Later, other countries including Norway, Denmark, Germany and Turkey signed secret sigint agreements with the United States and became "third parties" participants in the UKUSA network.
The NSA classifies about 30 other countries as "3rd parties," with whom it cooperates, though with reservations. Germany is one of them. "We can, and often do, target the signals of most 3rd party foreign partners," the secret NSA document reads.
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