Within Secrecy Problem
Can the Government Legally Hide Whether MJ 12 Records Exist?
A Glomar response can conceal whether records exist, but that legal tool does not turn every failed MJ-12 search into evidence of deeper secrecy.
On this page
- What a Glomar response actually means
- Why classified programs can sometimes remain officially unacknowledged
- Why MJ 12 agency findings go beyond a simple Glomar refusal
Page outline Jump by section
Introduction
A Glomar response can legally hide whether classified records exist at all. Under the US Freedom of Information Act (FOIA), an agency may sometimes answer a request by neither confirming nor denying that it holds responsive records, because even saying “yes” or “no” would itself disclose information protected by a FOIA exemption. That creates a genuine obstacle for anyone trying to investigate an alleged secret programme.[Department of Justice]justice.govDepartment of JusticeOffice of Information Policy | Department of Justice Guide to the Freedom of Information ActMay 28, 2026…
But this rule has a narrower implication for the alleged MJ-12 documents than is sometimes assumed. Glomar shows why silence from an intelligence agency cannot automatically prove that no secret records exist. It does not mean that every unsuccessful records search should be interpreted as concealed confirmation. In the MJ-12 case, important official findings were not merely refusals to confirm or deny: archivists searched relevant collections, agencies reported what they had found, and the Government Accountability Office (GAO) published conclusions about the alleged documents.[National Archives]archives.govNational Archives Project BLUE BOOKNational ArchivesProject BLUE BOOK - Unidentified Flying Objects | National ArchivesJune 25, 2024…
What a Glomar response actually means
The legal idea takes its name from the Hughes Glomar Explorer, a vessel publicly presented as part of a deep-sea mining enterprise but secretly used by the CIA in Project AZORIAN, an attempt to recover part of a sunken Soviet submarine. The CIA now openly describes that operation and identifies it as the origin of the “neither confirm nor deny” formulation.[CIA]cia.govFlag that Flew Above the Glomar ExplorerFlag that Flew Above the Glomar Explorer - CIA…
Journalist Harriet Ann Phillippi sought CIA records concerning the agency’s reported efforts to discourage press coverage of the Glomar operation. The resulting litigation, Phillippi v. CIA, became the foundational case associated with what came to be called the Glomar response.[Justia Law]law.justia.comJustia LawHarriet Ann Phillippi, Appellant, v. Central Intelligence Agency and George H. Bush, Director,central Intelligence Agency, 546…
The crucial point is that Glomar protects a fact about records, not simply the contents of records. Ordinarily, an agency might acknowledge that it possesses a document but withhold some or all of its contents under a FOIA exemption. With Glomar, the agency argues that it cannot safely reveal even whether the document exists.
That distinction matters. Suppose someone asks an intelligence agency for “all records showing that Agency X conducted operation Y”. Three superficially similar answers carry very different meanings:
- “We found no responsive records.” The agency is making a statement about the result of its search.
- “We found responsive records but they are exempt from disclosure.” The agency has acknowledged their existence while withholding their contents.
- “We can neither confirm nor deny the existence of responsive records.” The agency is asserting that revealing existence or non-existence would itself disclose protected information.
The US Department of Justice describes the modern rule in essentially those terms: where acknowledging whether records exist would harm an interest protected by a FOIA exemption, an agency may give a Glomar response. DOJ’s 2026 FOIA reporting guidance confirms that the mechanism remains in current use.[Department of Justice]justice.govunited states department justice 2026 chief foia officer report 0Department of JusticeOffice of Information Policy | United States Department of Justice 2026 Chief FOIA Officer Report…
This is therefore not a coded admission that documents exist. A properly framed Glomar policy has to preserve both possibilities. If an agency used “neither confirm nor deny” only when records actually existed, the response itself would become a reliable signal of existence and would defeat its purpose. DOJ has explicitly discussed this signalling problem in explaining related FOIA mechanisms for exceptionally sensitive law-enforcement and intelligence records.[Department of Justice]justice.govDepartment of JusticeOffice of Information Policy | Implementing FOIA's Statutory Exclusion ProvisionsDecember 6, 2022…
Why classified programmes can remain unacknowledged
National-security cases show why confirming absence can sometimes be almost as revealing as confirming presence. Intelligence services protect not only individual secrets but patterns: what they investigate, whom they monitor, which technologies they can detect and where their collection capabilities have gaps.
In Willis v. NSA, for example, a court accepted the National Security Agency’s position that confirming or denying whether it possessed intelligence records concerning the requester could reveal classified information about intelligence collection when such requests were considered collectively.[Department of Justice]justice.govwillis v nsa no 17 2038 2019 wl 1924249 ddc apr 30 2019 jackson jDepartment of JusticeOffice of Information Policy | Willis v. NSA, No. 17-2038, 2019 WL 1924249 (D.D.C. Apr. 30, 2019) (Jackson, J.) | Un…
The same logic appeared in litigation involving requested information about surveillance and satellites. In Igoshev v. NSA, the agency argued successfully that acknowledging whether responsive records existed could expose intelligence capabilities, activities and priorities, potentially helping adversaries understand what communications or targets the NSA could detect.[Department of Justice]justice.govigoshev v nsa no 17 1363 2018 wl 2045530 d md may 1 2018 hollander jigoshev v nsa no 17 1363 2018 wl 2045530 d md may 1 2018 hollander j
Courts therefore do not require the government to disclose the very secret that the Glomar response is intended to protect before permitting it to use the doctrine. Instead, national-security cases commonly ask whether the agency has supplied a sufficiently detailed explanation connecting acknowledgement of the records’ existence or absence to a recognised FOIA exemption. Courts frequently describe the required national-security justification as “logical and plausible”.[Department of Justice]justice.govOpen source on justice.gov.
That gives agencies significant room to protect genuinely unacknowledged intelligence activity, but it is not unlimited. A 2022 case concerning FBI records illustrates the boundary particularly clearly. A federal court accepted a Glomar response for operational documents, because acknowledgement could reveal intelligence sources, methods or activities, but rejected the blanket rationale for policy documents, whose mere existence did not necessarily expose the same secrets.[Department of Justice]justice.govOpen source on justice.gov.
A similar distinction appeared in a 2024 case involving intelligence agencies and commercially available information. The court accepted Glomar protection for operational material but held that the request was broad enough to encompass other records for which the agencies had not justified blanket concealment.[Department of Justice]justice.govOpen source on justice.gov.
Glomar, in other words, is not a general legal licence for an agency to make any inconvenient subject disappear.
Public knowledge does not always defeat Glomar
One counter-intuitive feature of the doctrine is that widespread public belief that an operation exists does not necessarily force an agency to acknowledge it.
Newspaper reporting, leaked documents, anonymous officials and statements by private individuals do not automatically amount to an official acknowledgement. Courts have distinguished between something being widely reported and the government officially confirming the precise fact that a FOIA requester wants confirmed. DOJ’s summaries of Glomar litigation record cases in which extensive public discussion was insufficient because the relevant agency had not officially acknowledged the specific connection or records at issue.[Department of Justice]justice.govOpen source on justice.gov.
Yet official disclosure can change the equation. The dispute over CIA records concerning US drone strikes provides a useful example. In 2013 the US Court of Appeals for the District of Columbia Circuit rejected the CIA’s attempt to maintain its complete Glomar position after senior US officials had publicly acknowledged enough about American participation in drone strikes that the agency’s claimed total silence was no longer considered logical or plausible in the form asserted. The court sent the case back for further proceedings rather than simply ordering every requested document released.[Department of Justice]justice.govaclu v cia no 11 5320 2013 wl 1003688 dc cir 2013 garland jaclu v cia no 11 5320 2013 wl 1003688 dc cir 2013 garland j
That last qualification is important. Defeating Glomar does not necessarily defeat classification. Once an agency has to acknowledge that records exist, it may still invoke applicable FOIA exemptions to withhold their contents.
For MJ-12 research, this distinction prevents two opposite errors. Public claims, leaked-looking papers and decades of discussion cannot by themselves force the conclusion that the government possesses authentic MJ-12 files. Equally, a genuine Glomar response concerning a narrowly defined classified subject would not establish that no such files existed. It would leave the existence question deliberately unanswered.
Why the MJ-12 findings are different
This is where the documentary history of MJ-12 becomes more important than the abstract possibility of Glomar.
The National Archives does not simply publish a statement saying that it can neither confirm nor deny whether MJ-12 material exists. Its reference report describes specific searches and their results. Archives staff searched records of the Secretary of Defense, Joint Chiefs of Staff, Headquarters US Air Force and related files without finding further information supporting the supposed MJ-12 project. Searches of National Security Council indexes under terms including “MJ-12”, “Majestic”, “UFO” and related expressions were negative apart from the controversial Cutler-to-Twining memorandum.[National Archives]archives.govNational Archives Project BLUE BOOKNational ArchivesProject BLUE BOOK - Unidentified Flying Objects | National ArchivesJune 25, 2024…
The Archives also records concrete anomalies surrounding that memorandum. The document was found in a series filed by Top Secret register number but lacked such a number; no other documents concerning “NSC/MJ-12” were found in its folder; inquiries to the Air Force, Joint Chiefs and National Security Council produced no further information; and the Eisenhower Library found no corresponding special meeting in the President’s appointment books for 16 July 1954. The Archives further notes that Robert Cutler was away inspecting military installations when the memorandum attributed to him was dated.[National Archives]archives.govNational Archives Project BLUE BOOKNational ArchivesProject BLUE BOOK - Unidentified Flying Objects | National ArchivesJune 25, 2024…
Those are positive statements about archival findings. They are not equivalent to “we refuse to tell you whether we have records”.
The 1995 GAO inquiry makes the distinction still sharper. GAO reported that the Information Security Oversight Office, Air Force and National Archives said their knowledge of Majestic 12 was limited to material supplied by people outside government. It found no evidence that the circulated MJ-12 material consisted of genuine executive-branch documents. GAO also reported that federal archivists had found nothing fitting the description of Majestic 12 or references to it in the collections searched, while the Air Force regarded a separate 1980 message containing the words “MJ Twelve” as a forgery.[Government Accountability Office]gao.govGovernment Accountability Office[Comments on Majestic 12 Material] | U.S. GAOGovernment Accountability Office[Comments on Majestic 12 Material] | U.S. GAO
None of this logically proves that no unidentified compartment, record or activity could ever have existed somewhere outside the collections examined. Historical searches always have limits, and Glomar doctrine demonstrates that US law can sometimes preserve uncertainty about exceptionally sensitive intelligence records.
But it changes what must be explained. The MJ-12 problem cannot accurately be reduced to “the government used Glomar, so nobody knows whether the files exist”. The public record instead contains documented searches, statements about agency holdings, examination of particular alleged documents and reported authenticity problems.
What Glomar can and cannot prove about MJ-12
Glomar is strongest as a warning against an overly simple inference: “FOIA produced nothing, therefore the secret programme never existed.” For genuinely unacknowledged intelligence matters, that reasoning can fail because FOIA law sometimes permits the government to conceal even the existence or absence of records.[Department of Justice]justice.govDepartment of JusticeOffice of Information Policy | Department of Justice Guide to the Freedom of Information ActMay 28, 2026…
It is much weaker as an argument running in the opposite direction: “FOIA produced nothing, therefore the programme may be hidden behind Glomar.” That possibility requires evidence that the relevant response actually was Glomar-like, or some independent reason to believe that the existence of responsive records was being protected. The mere existence of the doctrine cannot convert every negative search result into evidence for a secret compartment.
That asymmetry is central to evaluating alleged MJ-12 records. Glomar can preserve uncertainty; it cannot authenticate a document. It can explain why a particular intelligence agency might legally decline to settle an existence question; it cannot erase archival anomalies in an alleged memorandum. And it cannot transform affirmative official statements that searches found no corroborating records into “neither confirm nor deny” responses when that is not what the agencies said.
The most defensible conclusion is therefore deliberately narrow. Yes, the US government can in some circumstances legally hide whether classified records exist, so official silence alone is not decisive evidence against an extraordinary secret programme. But the published MJ-12 record goes beyond official silence. The National Archives and GAO documented searches and specific findings that weigh against the authenticity of the alleged MJ-12 material. Glomar doctrine supplies a legitimate reason for caution about arguments from absence; it does not supply positive evidence that MJ-12 existed.[National Archives]archives.govNational Archives Project BLUE BOOKNational ArchivesProject BLUE BOOK - Unidentified Flying Objects | National ArchivesJune 25, 2024…
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