Clark Clifford
Clark McAdams Clifford (December 25, 1906 – October 10, 1998) was an American lawyer, banker, and influential political figure who served as a key advisor to multiple U.S. presidents, most notably as a Democratic Party strategist and Secretary of Defense under President Lyndon B. Johnson from 1968 to 1969. Born in Fort Scott, Kansas, Clifford earned a law degree from Washington University in St. Louis and established a prominent legal career in Washington, D.C. His political career began as a naval aide to President Harry S. Truman, eventually becoming a close advisor and White House Counsel (1946–1950). He played a pivotal role in shaping Truman’s domestic and foreign policies, including the drafting of the National Security Act of 1947, which established the CIA and National Security Council.
Clifford’s influence extended across decades, advising Presidents John F. Kennedy, Lyndon Johnson, and Jimmy Carter. He was instrumental in the Kennedy administration’s transition and served as chairman of the President’s Intelligence Advisory Board (1961–1968). As Secretary of Defense, he shifted U.S. policy toward de-escalation in Vietnam, advocating for negotiations over continued military escalation. Later, he served as a special envoy to India under Carter and was a prominent Washington lawyer, representing major corporations and foreign governments. However, Clifford’s reputation was tarnished in the early 1990s due to his involvement with the Bank of Credit and Commerce International (BCCI). As chairman of First American Bankshares, a U.S. bank secretly controlled by BCCI, Clifford was implicated in the bank’s illegal activities, though he was never convicted. The scandal damaged his legacy as a trusted statesman.
Role in Creating the CIA
National Security Act of 1947
As a key advisor to President Truman, Clifford was instrumental in drafting the National Security Act, which established the CIA. He worked closely with military and intelligence officials to design the framework for the U.S. intelligence community. His role in creating the legal and structural foundation for the CIA gave him significant influence over its early operations, though he did not hold an operational role within the agency.
Advocacy for Centralized Intelligence
Clifford’s memorandum to Truman, co-authored with George Elsey, emphasized the need for a centralized intelligence agency to coordinate national security efforts post-World War II. This laid the groundwork for the CIA’s formation, positioning Clifford as a figure with deep ties to the agency’s origins.
Chairman of the President’s Intelligence Advisory Board (1961–1968):
Oversight of Intelligence Activities
During the Kennedy and Johnson administrations, Clifford served as chairman of the President’s Intelligence Advisory Board (then called the Foreign Intelligence Advisory Board), a body tasked with overseeing U.S. intelligence activities, including those of the CIA. In this role, he had direct access to classified intelligence operations and advised on CIA policies, budgets, and covert activities.
Bay of Pigs and Cuban Missile Crisis
Clifford was involved in reviewing CIA operations during critical events like the failed Bay of Pigs invasion (1961) and the Cuban Missile Crisis (1962). His oversight role meant he was briefed on CIA covert actions, including efforts to overthrow Fidel Castro, though there is no evidence he directly managed these operations.
Close Ties to CIA Leadership
Clifford worked with CIA directors like Allen Dulles and John McCone, shaping intelligence priorities during the Cold War. His influence was advisory rather than operational, but his proximity to CIA decision-making gave him significant insight into the agency’s activities.
Alleged CIA Connections Through BCCI
In the late 1970s, Clifford and his law partner, Robert Altman, were approached by Agha Hasan Abedi, the founder of BCCI, to represent the bank in acquiring First American Bankshares, a Washington, D.C.-based bank. Unbeknownst to Clifford, BCCI illegally controlled First American through nominees, violating U.S. banking laws. Clifford became chairman of First American, and the bank was later revealed to be a front for BCCI’s illicit activities, including money laundering and support for covert operations.
CIA’s Use of BCCI
As detailed in the response to your previous query about Abedi, BCCI was used by the CIA to funnel funds for covert operations, such as arming the Afghan mujahideen and facilitating the Iran-Contra affair. A 1992 Senate report confirmed the CIA held accounts at BCCI and used the bank for “sensitive intelligence operations.” Clifford’s role as chairman of First American placed him in proximity to these activities, though no direct evidence shows he was aware of or complicit in the CIA’s use of BCCI.
Allegations of CIA Complicity
Some sources, including investigative reports and former BCCI insiders, speculate that Clifford’s involvement with BCCI was tolerated by the CIA because the bank served as a useful tool for covert operations. For example, a former BCCI officer claimed Abedi had ties to Richard Helms, a former CIA director, who later became a legal client of Clifford’s law firm. This connection suggests a potential overlap between Clifford’s legal work and CIA interests, though it remains circumstantial.
Congressional Investigations
The 1991–1992 Senate investigations into BCCI, led by Senators John Kerry and Hank Brown, scrutinized Clifford’s role. Clifford testified that he was unaware of BCCI’s illegal control of First American, claiming he was misled by Abedi. Critics argued that Clifford, given his intelligence background and access to CIA briefings, should have suspected BCCI’s activities. However, the CIA’s own secrecy about its BCCI accounts limited what Clifford could have known, and he was never charged with wrongdoing.
Relationship with Richard Helms
Legal Representation of Helms
Clifford’s law firm represented Richard Helms, CIA director from 1966 to 1973, in legal matters after his tenure. This relationship, combined with the claim that Helms encouraged Abedi to found BCCI (as noted in the Abedi response), fuels speculation that Clifford’s involvement with BCCI was linked to CIA interests.
Critical Analysis
Clifford’s CIA connections are rooted in his foundational role in creating the agency, his oversight as chairman of the Intelligence Advisory Board, and his later entanglement with BCCI. His work on the National Security Act and advisory role during the Kennedy and Johnson administrations placed him at the heart of U.S. intelligence policy, giving him access to CIA operations and leadership. The BCCI scandal, however, is the primary source of allegations tying him to CIA activities, as the bank’s role in covert operations suggests Clifford was either complicit or negligent. The lack of direct evidence—such as documents or testimony confirming he knowingly facilitated CIA operations—leaves the question open to interpretation. The strongest case for a CIA connection lies in Clifford’s chairmanship of First American and BCCI’s documented use by the CIA. His prior intelligence roles and relationship with figures like Helms amplify suspicion, but his consistent denials and the absence of charges suggest he may have been unaware of the full extent of BCCI’s activities. Alternatively, his deep Washington connections and legal work for BCCI could indicate a passive role in a system where intelligence agencies exploited financial institutions without fully informing their figureheads.
Conclusion
Clark Clifford was a pivotal figure in U.S. national security, instrumental in creating the CIA and overseeing its activities as a presidential advisor. His connections to the CIA are well-documented in his roles during the Truman, Kennedy, and Johnson administrations, where he shaped intelligence policy and had access to classified operations. His later involvement with BCCI, a bank used by the CIA for covert operations, raises questions about his ties to the agency, particularly through his chairmanship of First American Bankshares and his legal work for figures like Richard Helms.