Report of the President's Commission on the Assassination of President John F. Kennedy

by United States. Warren Commission

THE NATURE OF THE PROTECTIVE ASSIGNMENT

The President is Head of State, Chief Executive, Commander in Chief, and leader of a political party. As the ceremonial head of the Government the President must discharge a wide range of public duties, not only in Washington but throughout the land. In this role he appears to the American people, in the words of William Howard Taft, as “the personal embodiment and representative of their dignity and majesty.”[C8-2] As Chief Executive, the President controls the exercise of the vast, almost incalculable powers of the executive branch of the Federal Government. As Commander in Chief of the Armed Forces, he must maintain ultimate authority over the development and disposition of our military power. Finally, in accordance with George Washington’s maxim that Americans have a government “of accommodation as well as a government of laws,”[C8-3] it is the President’s right and duty to be the active leader of his party, as when he seeks to be reelected or to maintain his party in power.

In all of these roles the President must go to the people. Exposure of the President to public view through travel among the people of this country is a great and historic tradition of American life. Desired by both the President and the public, it is an indispensable means of communication between the two. More often than not, Presidential journeys have served more than one purpose at the same time: ceremonial, administrative, political.

From George Washington to John F. Kennedy, such journeys have been a normal part of the President’s activities. To promote nationwide acceptance of his administration Washington made grand tours that served also to excite interest in the Presidency.[C8-4] In recent years, Presidential journeys have been frequent and extensive, partly because of the greater speed and comfort of travel and partly because of the greater demands made on the President. It is now possible for Presidents to travel the length and breadth of a land far larger than the United States in 1789 in less time than it took George Washington to travel from New York to Mount Vernon or Thomas Jefferson from Washington to Monticello. During his Presidency, Franklin D. Roosevelt made almost 400 journeys and traveled more than 350,000 miles.[C8-5] Since 1945, Roosevelt’s successors have ranged the world, and their foreign journeys have come to be accepted as normal rather than extraordinary.

John F. Kennedy’s journey to Texas in November 1963 was in this tradition. His friend and Special Assistant Kenneth O’Donnell, who accompanied him on his last visit to Dallas, stated the President’s views of his responsibilities with simplicity and clarity:

The President’s views of his responsibilities as President of the United States were that he meet the people, that he go out to their homes and see them, and allow them to see him, and discuss, if possible, the views of the world as he sees it, the problems of the country as he sees them. And he felt that leaving Washington for the President of the United States was a most necessary—not only for the people, but for the President himself, that he expose himself to the actual basic problems that were disturbing the American people. It helped him in his job here, he was able to come back here with a fresh view of many things. I think he felt very strongly that the President ought to get out of Washington, and go meet the people on a regular basis.[C8-6]

Whatever their purpose, Presidential journeys have greatly enlarged and complicated the task of protecting the President. The Secret Service and the Federal, State, and local law enforcement agencies which cooperate with it, have been confronted in recent years with increasingly difficult problems, created by the greater exposure of the President during his travels and the greater diversity of the audiences he must face in a world torn by conflicting ideologies.

If the sole goal were to protect the life of the President, it could be accomplished with reasonable assurance despite the multiple roles he must play. But his very position as representative of the people prevents him from effectively shielding himself from the people. He cannot and will not take the precautions of a dictator or a sovereign. Under our system, measures must be sought to afford security without impeding the President’s performance of his many functions. The protection of the President must be thorough but inconspicuous to avoid even the suggestion of a garrison state. The rights of private individuals must not be infringed. If the protective job is well done, its performance will be evident only in the unexceptional fact of its success. The men in charge of protecting the President, confronted by complex problems and limited as they are in the measures they may employ, must depend upon the utmost cooperation and understanding from the public and the President.

The problem and the reasonable approach to its solution were ably stated in a memorandum prepared by FBI Director J. Edgar Hoover for the President soon after the assassination:

The degree of security that can be afforded the President of the United States is dependent to a considerable extent upon the degree of contact with the general public desired by the President. Absolute security is neither practical nor possible. An approach to complete security would require the President to operate in a sort of vacuum, isolated from the general public and behind impregnable barriers. His travel would be in secret; his public appearances would be behind bulletproof glass.

A more practical approach necessitates compromise. Any travel, any contact with the general public, involves a calculated risk on the part of the President and the men responsible for his protection. Such risks can be lessened when the President recognizes the security problem, has confidence in the dedicated Secret Service men who are ready to lay down their lives for him and accepts the necessary security precautions which they recommend. Many Presidents have been understandably impatient with the security precautions which many years of experience dictate because these precautions reduce the President’s privacy and the access to him of the people of the country. Nevertheless the procedures and advice should be accepted if the President wishes to have any security.[C8-7]