ton. Today we are going to move down some distance and look at both how these missions are generated and how they are carried out.

We have as our principal witness today, Rear Adm. Frank L. Johnson, who was the Commander of Naval Forces in Japan at the time of this incident.

Commander Johnson, I know that this has been as unpleasant an experience for you as it has been for all Americans. We thank you for coming here today.

I understand you have a prepared statement, and if you will proceed with it at this time, we will appreciate it.

(The biographical sketch of Admiral Johnson is as follows:)

BIOGRAPHICAL SKETCH OF REAR ADM. FRANK LESHER JOHNSON, U.S. NAVY Frank Lesher Johnson was born in Delaware City, Delaware, on July 21, 1907, the son of Frank Brazilla and Elsie Nickle Johnson. He was graduated from the Atlantic City High School, Atlantic City, N.J. in 1925, and from the U.S. Naval Academy, Annapolis, Maryland, in June 1930. As a Midshipman he was Naval Academy handball singles champion and also the Naval Academy squash racquets champion for the year 1929-1930; was a member of the varsity swimming squad, and participated in class lacrosse and class football; and was a member of the Reception Committee in 1927-1928. Graduated and commissioned Ensign on June 5, 1930, he subsequently advanced to the rank of Captain, to date from August 1, 1948, having served in that rank (temporary) from December 10, 1945 to January 1, 1948. His selection for the rank of Rear Admiral was approved by the President on July 26, 1957; his date of rank is January 1, 1958.

After graduation from the Naval Academy, he had brief instruction in aviation at the Naval Air Station, San Diego, California, and in August 1930 joined the battleship USS NEW MEXICO and was assigned to gunnery duties in the Fire Control Division. Ensign Johnson was transferred to the light cruiser USS RICHMOND in May 1931 and served in the gunnery department until detached in 1936. The RICHMOND was ordered to British Honduras, Central America, in 1931 to protect American lives and property during the revolution of that year, subsequently serving as Flagship of the Special Service Squadron based in Balboa, Canal Zone in 1933-1934, and in 1934 was transferred to the Cruisers, Battle Force in the Pacific. The RICHMOND was ordered to Havana, Cuba and remained there for the first twelve months of the revolutionary regime of the dictator, Sgt. Batista, in 1933-1934. Subsequently, the RICHMOND was transferred to the Pacific Ocean Area. Lieutenant (jg) Johnson was awarded a Letter of Commendation when, as a boat officer attached to the USS RICHMOND, he assisted in the rescue of some sixty survivors of the lighter-than-air airship MACON off the California Coast in 1935.

Detached from the RICHMOND in March 1936, he reported in May for brief instruction at the Chemical Warfare School, Edgewood Arsenal, Edgewood, Maryland and during the next year he was under instruction in the General Line Course at the Naval Post Graduate School, Annapolis, Maryland. In June 1937, Lieutenant Johnson became Officer in Charge of the Fire Control School at the Naval Gun Factory, Navy Yard, Washington, D.C. From May 1938 to April 1941 he served as Gunnery Officer of the 1,500-ton destroyer, the MACDONOUGH (DD351) of Destroyer Squadron ONE, Battle Force, in Pacific waters, primarily in the Hawaiian detachment.

When World War II hostilities began he was serving as Gunnery and Operations Officer on the staff of Commander Destroyer Squadron SIX (USS Balche (DD363)—Flagship) in the Pacific area, and participated with the aircraft carrier Enterprise Task Group under Admirals Halsey and Spruance in the early Pacific Area naval engagements, including the Marshalls, Marcus Island and Wake Island raids, the Shangri La/Tokyo exploit, the Battles of Midway and Guadalcanal. In December 1942, Lieutenant Commander Johnson assumed command of the 2,100-ton destroyer, USS Fletcher (DD445) and, for outstanding services in that command in action against enemy Japanese forces in the Solomon Islands from January 5, to March 6, 1943, he was awarded the Legion of Merit with Combat "V" with citation which follows in part:

"During several night patrols the Fletcher was of invaluable service in helping disrupt numerous air attacks and, on one occasion, attacked and destroyed a hostile submarine. In two night bombardment operations against Munda, New Georgia Island, in the South Pacific Area, his ship capably led the task group into position. ... (He brought his vessel through this series of fierce engagements without damage.")

The Bronze Star Medal with Combat "V" was awarded, "For heroic service as Commanding Officer of the USS Fletcher . . . in the Solomon Islands area during January and February 1943. . . .” The citation continues, “During the night bombardment of an enemy airfield at Munda Point, New Georgia Island, he led the cruisers in for the assault, his accurate fire greatly assisting in the success of the operations . . . and by skillful maneuvers at high speed, avoided two bombs . . . sent in ahead of the cruiser Task Force to attack an enemy submarine about to submerge in a striking position, (he) made a perfect approach and destroyed it with a well-placed depth-charge barrage.

He was also awarded the Silver Star Medal for skill and seamanship displayed in destroying an enemy submarine in the South Pacific by directing his ship to lay a pattern of depth charges in an area in which the Japanese submarine had been detected. The citation complimented “. . . his keen judgement and outstanding efficiency after three violent explosions erupting large quantities of debris and oil, made positive evidence of the destruction of the submarine.”

Detached from command of Fletcher in May 1943, Commander Johnson joined the staff of Commander Fleet Operational Training Command, Pacific Fleet in San Diego, California as the underway and ashore CIC Training Officer, an assignment completed in April 1944. He then commissioned and fitted out the 2,200-ton destroyer USS Purdy (DD734)' and commanded that destroyer during the Okinawa operations in April 1945. “For extraordinary heroism during operations on April 12, 1945. . ." he was awarded the Navy Cross. The citation states that during repeated and determined attacks by about 30 suicide enemy aircraft, covering a period of nearly two hours, in radar picket station Number One, “. . . his ship destroyed four enemy planes, assisted in the destruction of two, and damaged another. .

He was awarded a Gold Star in lieu of his second Navy Cross for heroism on April 6, 1945, for saving the destroyer USS Mullany, which had been abandoned after being severely damaged by enemy suicide aircraft attacks. In the presence of enemy suicide planes, and under continuous threat of attack, he placed the Purdy alongside the Mullany in an attempt to put out the serious fires in the vicinity of her after ammunition magazines which were expected to blow up at any moment. The citation states that, “With complete disregard for his own personal safety and by his inspiring leadership, outstanding courage, and skillful seamanship, the fires were extinguished, thereby making possible the salvage of a valuable combatant unit of our Fleet. . . ."

He is also entitled to the Ribbon for, and facsimile of, the Navy Unit Commendation awarded the USS Purdy under command of Commander Johnson, for the action off Okinawa on April 12, 1945.

From August to December 1945, after the cessation of hostilities, he served as Chief of Staff to Commander Task Flotilla FIVE in Korean and Chinese waters. Captain Johnson then assumed duties as Awards Officer on the staff of Commander Destroyer Force, U.S. Pacific Fleet at Pearl Harbor, T.H., until his return to the United States in April 1946 when he reported to Newport, Rhode Island for duty until June 1949 at the Naval School of General Line, as Head of the Department of Ordnance and Gunnery. He again had duty afloat, for a year, as Commander Destroyer Division FIFTY-TWO, in the Pacific, and on August 10, 1950 reported to the Naval War College, Newport, Rhode Island, first as a student then for two years as a member of the Naval War College faculty in the Department of Strategy and Tactics.

From July 1953, until June 1954, he commanded the Attack Cargo Ship USS Seminole (AKA104) attached to Amphibious Transport Squadron ONE in the Pacific Fleet. The Seminole participated in the POW lift in Korea, and transported 10,000 North Korean and Chinese prisoners-of-war from South Korean prison camps to Inchon, Korea. From 1954 to April 1956, Captain Johnson headed the Strategic Studies Branch (OP-603) and subsequently the Joint and International Plans Branch (OP-601), in the Office of the Chief of Naval Operations, Navy Department, Washington, D.C. He commanded Destroyer Squadron THIRTY, a unit of Destroyer Force, U.S. Atlantic Fleet, during 1956 and 1957.

DESRON 30 participated in the Suez Canal Operation in 1956, and also in the Jordan crisis in 1957 while deployed with the SIXTH Fleet in the Mediterranean. After selection to flag rank, Rear Admiral Johnson reported on September 10, 1957, as Commander Military Sea Transportation Service, Eastern Atlantic and Mediterranean Area with headquarters in London, England. During this tour of duty he provided surface lift support for two battle groups of the U.S. Army forces, Germany, in the Lebanon crisis. On 14 November 1959, he assumed command of Destroyer Flotilla SIX, Destroyer Force, U.S. Atlantic Fleet, based in Newport, Rhode Island, and subsequently in Charleston, South Carolina. On 16 December 1960, Rear Admiral Johnson was assigned to the Office of the Chief of Naval Operations as the Director of Shore Activities Development and Control Division (OP-44).

On March 1, 1963, Rear Admiral Johnson assumed command as Commander Military Sea Transportation Service, Atlantic Area, with headquarters in Brooklyn, New York. He reported to Yokosuka, Japan on 31 July 1965 for duty as Commander U.S. Naval Forces, Japan. For exceptionally meritorious service and distinguished performance from July 1965 to June 1968 as Commander U.S. Naval Forces, Japan, the President of the United States presented the Legion of Merit (Gold Star in lieu of second award ) to Rear Admiral Johnson. On 16 July 1968, Rear Admiral Johnson assumed command of the 13th Naval District in Seattle, Washington. The 13th Naval District includes the states of Washington, Oregon, Montana and Idaho.

In addition to the Navy Cross with Gold Star in lieu of a second Navy Cross, the Silver Star, the Legion of Merit with Gold Star in lieu of a second Legion of Merit with Combat "V", the Bronze Star with Combat "V", the Navy Commendation Ribbon with Combat "V", and the Navy Unit Commendation Ribbon; Rear Admiral Johnson holds the American Defense Service Medal with Fleet Clasp, the American Campaign Medal, the Asiatic-Pacific Campaign Medal with 9 Battle Stars, the World War II Victory Medal with Asia Clasp, the China Service Medal, the Navy Occupation Service Medal, the National Defense Service Medal, the Korean Service Medal, the United Nations Service Medal, the Philippine Liberation Ribbon, and the Japanese Second Order of Sacred Treasure Medal.

Rear Admiral Johnson's present home address is Quarters "A", Seattle Division, Naval Supply Center Puget Sound, Seattle, Washington 98119. He married the former Nina E. McAlister of Miami, Florida in 1934 and they have two daughters, Sandra Gay and Wendy Leigh Johnson (Mrs. Francis M. Bunch, III).

STATEMENT OF REAR ADM. FRANK L. JOHNSON, U.S. NAVY

Admiral JOHNSON. Mr. Chairman and gentlemen, I am Rear Adm. Frank L. Johnson, U.S. Navy, Commandant of the 13th Naval District. At the time of the Pueblo incident, I was Commander U.S. Naval Forces Japan and Commander Task Force 96. I am accompanied by Capt. W. H. Everett who was my operations officer at the time of the Pueblo incident.

In accordance with the request of this committee, I have prepared an unclassified statement of the facts available to me in regard to the unlawful seizure of the U.S.S. Pueblo on January 23, 1968.

I shall present a brief background of the surface surveillance operations program prior to the arrival on December 1, 1967 of the U.S.S. Pueblo in the area over which I, as Commander U.S. Naval Forces Japan (COMNAVFORJAPAN), has cognizance. I hope it will be helpful to this committee in furthering your understanding of the concept of the surface surveillance program and the rationale behind the implementing operations which U.S.S. Pueblo was carrying out in January 1968 and my responsibilities for the Pueblo mission.

When the U.S.S. Pueblo was seized, she was under my operational control as COMNAVFORJAPAN and Commander Task Force 96.

My immediate superior in the U.S. Navy chain of command was the Commander in Chief, U.S. Pacific Fleet (CINCFLT), the naval component commander in the Pacific Unified Command. I exercised operational control of the U.S.S. Pueblo under guidance and directives issued by CINCPACFLT.

The U.S.S. Pueblo and the U.S.S. Banner, AGER's as they are called, were under my operational control from the day of departure for a specific mission from a port in Japan until the day of return to port from that mission. At all other times, these ships were under the operational control of the Commander 7th Fleet (Comseventhflt). The AGER's are under the administration of the Commander Service Force, Pacific (Comservpac), who as the ship type commander is charged by Cincpacflt with responsibilities for the training of personnel (less naval security group personnel), material maintenance and repair of the ships, and with primary cognizance of such areas of ship inspections and appropriate reports, and overall readiness of ship and crew to carry out operation assignments.

The surface surveillance program was initiated in August 1965. Cincpacflt's message 220139Z of September 1965, laid out the concept of the operation of the underway surface surveillance program and directed Comnav for Japan to carry out the program. This message was superseded by a later message, Cincpacflt's 021922Z of March 1966. It was under this later directive that the U.S.S. Pueblo was operating in January 1968. Under the concept of the latter directive, the mission of the AGER, in effect, provides for seaborne surveillance by a small ship acting singly. The AGER was to remain a minimum of one mile outside claimed territorial waters or a total distance of 13 miles. For assistance to the AGER when needed, Comnavfor Japan was directed by Cincpacflt to keep certain commands, such as Comseventhflt, Headquarters 5th Air Force, Cincpacflt, and Cincpac, advised of the AGER's movements and intentions. This I did in my Operation Order No. 301-68 and in my "Sailing Orders." Comnav for Japan was further directed to submit a surface reconnaissance operation proposal message to Cincpacflt by the 12th of the month preceding a mission. This "Proposal" message was passed to Cincpacfit, Cincpac, and JCS, and concurrence was passed back down the chain of command to Cinepacflt, who by message directed Comnav for Japan to conduct the mission or operation Comnav for Japan by message, called a "Sailing Order," issued specific instructions to the AGER in compliance.

Mr. PIKE. Admiral Johnson, may I interrupt right at that point? Admiral JOHNSON. Yes, sir.

Mr. PIKE. We have been trying to find out for some time from the Navy whether a copy of your Operation Order 301-68 was captured when the Pueblo was captured. Do you know the answer to that? Admiral JOHNSON. I do not know, sir.

Mr. PIKE. Apparently nobody in the Navy does, Admiral, and we are trying very hard to get the answer to that question, because it does enable us to ask questions ourselves. We sort of decline to be bound by security regulations when we know that the North Koreans have the documents.

Admiral JOHNSON. Yes, sir.

I will continue with my statement.

The "Proposal" message included an evaluation of the risk involved in a particular mission. I personally made the initial determination of the risk evaluation. Factors considered in the risk evaluation were: geographical location, political climate, nature and scope of intelligence tasks, ship operations to be only in international waters, study of previous missions, hostile reaction and harassment, and friendly forces available. In all "Proposal" messages for the 18 scheduled missions, the estimate of risk was expressed as: Risk is estimated to be minimal since operations will be conducted in international waters. The "risk minimal" evaluation was concurred in by all commands in the chain of command, including JCS, for all missions which Comnav for Japan was directed by Cincpacfit to conduct.

As Comnav for Japan, I took a direct and continuing interest in these operations and, except for two or three missions, I personally released both the "Proposal" message and the "Sailing Order" message. My staff and I received a formal debriefing of each mission by the Commanding Officer of the AGER at the completion of each operation.

The feasibility of the concept for the surface surveillance program depended almost entirely upon the safety afforded the AGER's by the time-honored international recognition and acceptance of the principle of freedom of the seas. No forces were assigned to the operational control of Comnavfor Japan to provide protection to the AGER's. Since no U.S. Navy ship had been seized on the high seas for over 150 years, unlawful seizure of the AGER's in international waters was considered highly improbable.

Beginning in October 1965 and continuing until December 21, 1968, a total of 17 surface surveillance missions (the U.S.S. Pueblo mission not included) were scheduled. Sixteen such missions were conducted by the U.S.S. Banner. The first eight missions were conducted in the Sea of Japan. Three of the eight subsequent missions were conducted in the East China Sea. The remaining five missions were carried out in the Sea of Japan.

On Mission No. 9, the first to be conducted in the East China Sea, the risk evaluation was assessed as minimal, although I was concerned. about the political sensitivity of the area and the unknown reaction to the surveillance operation. I can say very frankly that my concern was based not on unlawful seizure but on the safety of the AGER. In particular, it centered on the harassment tactics of foreign ships which could result in a collision and holing of the Banner with a resultant jeopardy to her safety.

The harassment with which I was concerned was the employment of foreign surface ships operating in close proximity to the AGER in an attempt to intimidate the AGER and cause her to withdraw from the area in which she was operating.

The Banner was harassed on ten of the 16 missions she conducted, including the severe harassment that she received during each of the three East China Sea missions.

Another area which gave me concern for the safety of the AGER was the ever present possibility of a mechanical casualty which, combined with unfavorable wind, current, and wave action, could result in the ship drifting into territorial waters of an unfriendly nation.