The Department of State yesterday released a long-suppressed volume of historical records documenting the role of the United States in the 1953 coup against the Iranian government of Mohammad Mosadeq.
“This retrospective volume focuses on the evolution of U.S. thinking on Iran as well as the U.S. Government covert operation that resulted in Mosadeq’s overthrow on August 19, 1953,” the Preface says. See Foreign Relations of the United States (FRUS), 1952-1954, Iran, 1951-1954.
“This volume includes National Security Council and Presidential materials that document the U.S. decision to proceed with the operation against Mosadeq, and the operational files within the Central Intelligence Agency (CIA) that document the implementation of the operation, codenamed TPAJAX.”
Some of the relevant records were destroyed long ago.
“The original CIA cables relating to the implementation of the covert action TPAJAX no longer exist. The original TPAJAX operational cables appear to have been destroyed as part of an office purge undertaken in 1961 or 1962, in anticipation of Near East (NE) Division’s move to the Central Intelligence Agency’s new headquarters.”
However, “Department of State historians obtained hand-typed transcriptions of microfilmed copies of these cables” and “twenty-one are published in this volume and an additional seven are referenced in footnotes.”
A small portion of the 1,000-page collection remains classified.
“The declassification review of this volume, which began in 2004 and was completed in 2014, resulted in the decision to withhold 10 documents in full, excise a paragraph or more in 38 documents, and make minor excisions of less than a paragraph in 82 documents,” the editors wrote. Without knowing for certain, some of the withheld information may pertain to discussion of British involvement in the operation, as well as technical details such as cryptonyms.
Rectifying a “Fraud”
The release of the Iran history volume is the culmination — and apparently the resolution — of decades of controversy that began in 1989 after the Department published a FRUS volume on US-Iran relations between 1951 and 1954 that neglected to mention any covert operation against the Iran government. That earlier volume was widely denounced by US historians and others.
“The omissions combine to make the Iran volume in the period of 1952–54 a fraud,” wrote historian Bruce R. Kuniholm in 1990.
“This is ‘Hamlet’ without the Prince of Denmark — or the ghost,” the New York Times editorialized back then.
Over time, the State Department itself came to agree with that critical assessment.
“The Department’s self-censorship exemplified, but also obscured, the restrictive impulses toward historical transparency that prevailed throughout the U.S. Government” at the time, according to a candid and thoughtful State Department history of the Foreign Relations series. “FRUS historians could have been more assertive in their efforts to promote greater openness in the 1980s. They should have recognized that the  Iran volume was too incomplete to be published without damaging the series’s reputation.”
On the plus side, “Academic criticism of the  ‘Iran Volume’ and the restrictions placed on [advisory committee]access to classified material raised public and congressional awareness of the erosion of transparency in the 1980s.”
This in turn led to enactment in 1991 of a new statutory requirement that the FRUS series must provide “a thorough, accurate, and reliable documentary record of major United States foreign policy.”
But at the end of the Obama Administration, and as recently as April of this year, release of the Iran retrospective volume seemed to be indefinitely blocked.
In 2016, “the Department of State did not permit publication of the long-delayed Iran Retrospective volume because it judged the political environment too sensitive,” the Department’s Historical Advisory Committee (HAC) wrote in its latest annual report. “The HAC was unsuccessful in its efforts to meet with [then-]Secretary Kerry to discuss the volume, and now there is no timetable for its release.”
And then yesterday, all of a sudden and with minimal notice, it was posted online. The publication was welcomed by the chair of the Historical Advisory Committee, Temple University historian Richard H. Immerman.
“As it expressed in last year’s annual report, the HAC was repeatedly frustrated–and disappointed–by Secretary Kerry’s refusal to allow the volume’s publication,” Prof. Immerman said yesterday. “In this regard the change in State’s perspective from the Obama to Trump administration is dramatic.”
There is no known evidence that Secretary of State Tillerson participated in the decision to permit publication. But, an official said, “there is no question that receiving approval to publish the volume was much less difficult with the change of administrations. Indeed, it encountered remarkably little resistance.”
Evidently wishing to downplay its significance, however, the State Department buried an announcement of the new volume at the bottom of a June 15 press release. After listing 16 other publications, it briefly mentioned that the Iran retrospective volume had “also” been released, making no mention of the decades-long controversy leading up to its publication.
Needless to say, the sky has not fallen due to the disclosure, and is not expected to. US relations with Iran will remain as fraught in the near future as they have been in the recent past. (The Senate voted yesterday 98-2 in favor of sanctions on Iran in connection with that country’s “ballistic missile program, support for acts of international terrorism, and violations of human rights.”)
But a pointless and misleading omission in the historical record has now been rectified.
“The public and scholarly community owes a great debt to not only the remarkable effort and perseverance of literally generations of State Department historians and the [History] Office’s leadership, but also their collective commitment to historical accuracy and transparency,” said Prof. Immerman.
By Steven Aftergood
Steven Aftergood directs the FAS Project on Government Secrecy. The Project works to reduce the scope of national security secrecy and to promote public access to government information.
He writes Secrecy News, which reports on new developments in secrecy policy and provides direct access to significant official records that are otherwise unavailable or hard to find.