Chapter I: Summary and Conclusions (2)

This Commission was created to ascertain the facts relating to the preceding summary of events and to consider the important questions which they raised. The Commission has addressed itself to this task and has reached certain conclusions based on all the available evidence. No limitations have been placed on the Commission’s inquiry; it has conducted its own investigation, and all Government agencies have fully discharged their responsibility to cooperate with the Commission in its investigation. These conclusions represent the reasoned judgment of all members of the Commission and are presented after an investigation which has satisfied the Commission that it has ascertained the truth concerning the assassination of President Kennedy to the extent that a prolonged and thorough search makes this possible.

1. The shots which killed President Kennedy and wounded Governor Connally were fired from the sixth floor window at the southeast corner of the Texas School Book Depository. This determination is based upon the following:

(_a_) Witnesses at the scene of the assassination saw a rifle
being fired from the sixth floor window of the Depository
Building, and some witnesses saw a rifle in the window
immediately after the shots were fired.

(_b_) The nearly whole bullet found on Governor Connally’s
stretcher at Parkland Memorial Hospital and the two bullet
fragments found in the front seat of the Presidential limousine
were fired from the 6.5-millimeter Mannlicher-Carcano rifle
found on the sixth floor of the Depository Building to the
exclusion of all other weapons.

(_c_) The three used cartridge cases found near the window on
the sixth floor at the southeast corner of the building were
fired from the same rifle which fired the above-described
bullet and fragments, to the exclusion of all other weapons.

(_d_) The windshield in the Presidential limousine was struck
by a bullet fragment on the inside surface of the glass, but
was not penetrated.

(_e_) The nature of the bullet wounds suffered by President
Kennedy and Governor Connally and the location of the car at
the time of the shots establish that the bullets were fired
from above and behind the Presidential limousine, striking the
President and the Governor as follows:

(1) President Kennedy was first struck by a bullet which
entered at the back of his neck and exited through the lower
front portion of his neck, causing a wound which would not
necessarily have been lethal. The President was struck a second
time by a bullet which entered the right-rear portion of his
head, causing a massive and fatal wound.

(2) Governor Connally was struck by a bullet which entered on
the right side of his back and traveled downward through the
right side of his chest, exiting below his right nipple. This
bullet then passed through his right wrist and entered his left
thigh where it caused a superficial wound.

(_f_) There is no credible evidence that the shots were fired
from the Triple Underpass, ahead of the motorcade, or from any
other location.

2. The weight of the evidence indicates that there were three shots fired.

3. Although it is not necessary to any essential findings of the Commission to determine just which shot hit Governor Connally, there is very persuasive evidence from the experts to indicate that the same bullet which pierced the President’s throat also caused Governor Connally’s wounds. However, Governor Connally’s testimony and certain other factors have given rise to some difference of opinion as to this probability but there is no question in the mind of any member of the Commission that all the shots which caused the President’s and Governor Connally’s wounds were fired from the sixth floor window of the Texas School Book Depository.

4. The shots which killed President Kennedy and wounded Governor Connally were fired by Lee Harvey Oswald. This conclusion is based upon the following:

(_a_) The Mannlicher-Carcano 6.5-millimeter Italian rifle from
which the shots were fired was owned by and in the possession
of Oswald.

(_b_) Oswald carried this rifle into the Depository Building on
the morning of November 22, 1963.

(_c_) Oswald, at the time of the assassination, was present at
the window from which the shots were fired.

(_d_) Shortly after the assassination, the Mannlicher-Carcano
rifle belonging to Oswald was found partially hidden between
some cartons on the sixth floor and the improvised paper bag
in which Oswald brought the rifle to the Depository was found
close by the window from which the shots were fired.

(_e_) Based on testimony of the experts and their analysis of
films of the assassination, the Commission has concluded that a
rifleman of Lee Harvey Oswald’s capabilities could have fired
the shots from the rifle used in the assassination within the
elapsed time of the shooting. The Commission has concluded
further that Oswald possessed the capability with a rifle
which enabled him to commit the assassination.

(_f_) Oswald lied to the police after his arrest concerning
important substantive matters.

(_g_) Oswald had attempted to kill Maj. Gen. Edwin A. Walker
(Resigned, U. S. Army) on April 10, 1963, thereby demonstrating
his disposition to take human life.

5. Oswald killed Dallas Police Patrolman J. D. Tippit approximately 45 minutes after the assassination. This conclusion upholds the finding that Oswald fired the shots which killed President Kennedy and wounded Governor Connally and is supported by the following:

(_a_) Two eyewitnesses saw the Tippit shooting and seven
eyewitnesses heard the shots and saw the gunman leave the scene
with revolver in hand. These nine eyewitnesses positively
identified Lee Harvey Oswald as the man they saw.

(_b_) The cartridge cases found at the scene of the shooting
were fired from the revolver in the possession of Oswald at the
time of his arrest to the exclusion of all other weapons.

(_c_) The revolver in Oswald’s possession at the time of his
arrest was purchased by and belonged to Oswald.

(_d_) Oswald’s jacket was found along the path of flight taken
by the gunman as he fled from the scene of the killing.

6. Within 80 minutes of the assassination and 35 minutes of the Tippit killing Oswald resisted arrest at the theatre by attempting to shoot another Dallas police officer.

7. The Commission has reached the following conclusions concerning Oswald’s interrogation and detention by the Dallas police:

(_a_) Except for the force required to effect his arrest,
Oswald was not subjected to any physical coercion by any law
enforcement officials. He was advised that he could not be
compelled to give any information and that any statements made
by him might be used against him in court. He was advised of
his right to counsel. He was given the opportunity to obtain
counsel of his own choice and was offered legal assistance by
the Dallas Bar Association, which he rejected at that time.

(_b_) Newspaper, radio, and television reporters were allowed
uninhibited access to the area through which Oswald had to
pass when he was moved from his cell to the interrogation room
and other sections of the building, thereby subjecting Oswald
to harassment and creating chaotic conditions which were not
conducive to orderly interrogation or the protection of the
rights of the prisoner.

(_c_) The numerous statements, sometimes erroneous, made to
the press by various local law enforcement officials, during
this period of confusion and disorder in the police station,
would have presented serious obstacles to the obtaining of
a fair trial for Oswald. To the extent that the information
was erroneous or misleading, it helped to create doubts,
speculations, and fears in the mind of the public which might
otherwise not have arisen.

8. The Commission has reached the following conclusions concerning the killing of Oswald by Jack Ruby on November 24, 1963:

(_a_) Ruby entered the basement of the Dallas Police Department
shortly after 11:17 a.m. and killed Lee Harvey Oswald at 11:21
a.m.

(_b_) Although the evidence on Ruby’s means of entry is not
conclusive, the weight of the evidence indicates that he walked
down the ramp leading from Main Street to the basement of the
police department.

(_c_) There is no evidence to support the rumor that Ruby
may have been assisted by any members of the Dallas Police
Department in the killing of Oswald.

(_d_) The Dallas Police Department’s decision to transfer
Oswald to the county jail in full public view was unsound.
The arrangements made by the police department on Sunday
morning, only a few hours before the attempted transfer, were
inadequate. Of critical importance was the fact that news media
representatives and others were not excluded from the basement
even after the police were notified of threats to Oswald’s
life. These deficiencies contributed to the death of Lee Harvey
Oswald.

9. The Commission has found no evidence that either Lee Harvey Oswald or Jack Ruby was part of any conspiracy, domestic or foreign, to assassinate President Kennedy. The reasons for this conclusion are:

(_a_) The Commission has found no evidence that anyone assisted
Oswald in planning or carrying out the assassination. In this
connection it has thoroughly investigated, among other factors,
the circumstances surrounding the planning of the motorcade
route through Dallas, the hiring of Oswald by the Texas School
Book Depository Co. on October 15, 1963, the method by which
the rifle was brought into the building, the placing of cartons
of books at the window, Oswald’s escape from the building, and
the testimony of eyewitnesses to the shooting.

(_b_) The Commission has found no evidence that Oswald
was involved with any person or group in a conspiracy to
assassinate the President, although it has thoroughly
investigated, in addition to other possible leads, all facets
of Oswald’s associations, finances, and personal habits,
particularly during the period following his return from the
Soviet Union in June 1962.

(_c_) The Commission has found no evidence to show that
Oswald was employed, persuaded, or encouraged by any foreign
government to assassinate President Kennedy or that he was an
agent of any foreign government, although the Commission has
reviewed the circumstances surrounding Oswald’s defection to
the Soviet Union, his life there from October of 1959 to June
of 1962 so far as it can be reconstructed, his known contacts
with the Fair Play for Cuba Committee, and his visits to the
Cuban and Soviet Embassies in Mexico City during his trip to
Mexico from September 26 to October 3, 1963, and his known
contacts with the Soviet Embassy in the United States.

(_d_) The Commission has explored all attempts of Oswald to
identify himself with various political groups, including the
Communist Party, U. S. A., the Fair Play for Cuba Committee,
and the Socialist Workers Party, and has been unable to find
any evidence that the contacts which he initiated were related
to Oswald’s subsequent assassination of the President.

(_e_) All of the evidence before the Commission established
that there was nothing to support the speculation that Oswald
was an agent, employee, or informant of the FBI, the CIA, or
any other governmental agency. It has thoroughly investigated
Oswald’s relationships prior to the assassination with all
agencies of the U. S. Government. All contacts with Oswald by
any of these agencies were made in the regular exercise of
their different responsibilities.

(_f_) No direct or indirect relationship between Lee Harvey
Oswald and Jack Ruby has been discovered by the Commission, nor
has it been able to find any credible evidence that either knew
the other, although a thorough investigation was made of the
many rumors and speculations of such a relationship.

(_g_) The Commission has found no evidence that Jack Ruby acted
with any other person in the killing of Lee Harvey Oswald.

(_h_) After careful investigation the Commission has found no
credible evidence either that Ruby and Officer Tippit, who was
killed by Oswald, knew each other or that Oswald and Tippit
knew each other.

Because of the difficulty of proving negatives to a certainty
the possibility of others being involved with either Oswald
or Ruby cannot be established categorically, but if there is
any such evidence it has been beyond the reach of all the
investigative agencies and resources of the United States and
has not come to the attention of this Commission.

10. In its entire investigation the Commission has found no evidence of conspiracy, subversion, or disloyalty to the U. S. Government by any Federal, State, or local official.

11. On the basis of the evidence before the Commission it concludes that Oswald acted alone. Therefore, to determine the motives for the assassination of President Kennedy, one must look to the assassin himself. Clues to Oswald’s motives can be found in his family history, his education or lack of it, his acts, his writings, and the recollections of those who had close contacts with him throughout his life. The Commission has presented with this report all of the background information bearing on motivation which it could discover. Thus, others may study Lee Oswald’s life and arrive at their own conclusions as to his possible motives.

The Commission could not make any definitive determination of Oswald’s motives. It has endeavored to isolate factors which contributed to his character and which might have influenced his decision to assassinate President Kennedy. These factors were:

(_a_) His deep-rooted resentment of all authority which was
expressed in a hostility toward every society in which he lived;

(_b_) His inability to enter into meaningful relationships with
people, and a continuous pattern of rejecting his environment
in favor of new surroundings;

(_c_) His urge to try to find a place in history and despair at
times over failures in his various undertakings;

(_d_) His capacity for violence as evidenced by his attempt to
kill General Walker;

(_e_) His avowed commitment to Marxism and communism, as he
understood the terms and developed his own interpretation of
them; this was expressed by his antagonism toward the United
States, by his defection to the Soviet Union, by his failure
to be reconciled with life in the United States even after
his disenchantment with the Soviet Union, and by his efforts,
though frustrated, to go to Cuba.

Each of these contributed to his capacity to risk all in cruel and irresponsible actions.

12. The Commission recognizes that the varied responsibilities of the President require that he make frequent trips to all parts of the United States and abroad. Consistent with their high responsibilities Presidents can never be protected from every potential threat. The Secret Service’s difficulty in meeting its protective responsibility varies with the activities and the nature of the occupant of the Office of President and his willingness to conform to plans for his safety. In appraising the performance of the Secret Service it should be understood that it has to do its work within such limitations. Nevertheless, the Commission believes that recommendations for improvements in Presidential protection are compelled by the facts disclosed in this investigation.

(_a_) The complexities of the Presidency have increased so
rapidly in recent years that the Secret Service has not been
able to develop or to secure adequate resources of personnel
and facilities to fulfill its important assignment. This
situation should be promptly remedied.

(_b_) The Commission has concluded that the criteria and
procedures of the Secret Service designed to identify and
protect against persons considered threats to the president,
were not adequate prior to the assassination.

(1) The Protective Research Section of the Secret Service,
which is responsible for its preventive work, lacked sufficient
trained personnel and the mechanical and technical assistance
needed to fulfill its responsibility.

(2) Prior to the assassination the Secret Service’s criteria
dealt with direct threats against the President. Although the
Secret Service treated the direct threats against the President
adequately, it failed to recognize the necessity of identifying
other potential sources of danger to his security. The Secret
Service did not develop adequate and specific criteria defining
those persons or groups who might present a danger to the
President. In effect, the Secret Service largely relied upon
other Federal or State agencies to supply the information
necessary for it to fulfill its preventive responsibilities,
although it did ask for information about direct threats to the
President.

(_c_) The Commission has concluded that there was insufficient
liaison and coordination of information between the Secret
Service and other Federal agencies necessarily concerned with
Presidential protection. Although the FBI, in the normal
exercise of its responsibility, had secured considerable
information about Lee Harvey Oswald, it had no official
responsibility, under the Secret Service criteria existing
at the time of the President’s trip to Dallas, to refer to
the Secret Service the information it had about Oswald. The
Commission has concluded, however, that the FBI took an unduly
restrictive view of its role in preventive intelligence work
prior to the assassination. A more carefully coordinated
treatment of the Oswald case by the FBI might well have
resulted in bringing Oswald’s activities to the attention of
the Secret Service.

(_d_) The Commission has concluded that some of the advance
preparations in Dallas made by the Secret Service, such as the
detailed security measures taken at Love Field and the Trade
Mart, were thorough and well executed. In other respects,
however, the Commission has concluded that the advance
preparations for the President’s trip were deficient.

(1) Although the Secret Service is compelled to rely to a great
extent on local law enforcement officials, its procedures at
the time of the Dallas trip did not call for well-defined
instructions as to the respective responsibilities of the
police officials and others assisting in the protection of the
President.

(2) The procedures relied upon by the Secret Service for
detecting the presence of an assassin located in a building
along a motorcade route were inadequate. At the time of the
trip to Dallas, the Secret Service as a matter of practice did
not investigate, or cause to be checked, any building located
along the motorcade route to be taken by the President. The
responsibility for observing windows in these buildings during
the motorcade was divided between local police personnel
stationed on the streets to regulate crowds and Secret Service
agents riding in the motorcade. Based on its investigation the
Commission has concluded that these arrangements during the
trip to Dallas were clearly not sufficient.

(_e_) The configuration of the Presidential car and the seating
arrangements of the Secret Service agents in the car did not
afford the Secret Service agents the opportunity they should
have had to be of immediate assistance to the President at the
first sign of danger.

(_f_) Within these limitations, however, the Commission
finds that the agents most immediately responsible for the
President’s safety reacted promptly at the time the shots were
fired from the Texas School Book Depository Building.

RECOMMENDATIONS

Prompted by the assassination of President Kennedy, the Secret Service has initiated a comprehensive and critical review of its total operations. As a result of studies conducted during the past several months, and in cooperation with this Commission, the Secret Service has prepared a planning document dated August 27, 1964, which recommends various programs considered necessary by the Service to improve its techniques and enlarge its resources. The Commission is encouraged by the efforts taken by the Secret Service since the assassination and suggests the following recommendations.

1. A committee of Cabinet members including the Secretary of the Treasury and the Attorney General, or the National Security Council, should be assigned the responsibility of reviewing and overseeing the protective activities of the Secret Service and the other Federal agencies that assist in safeguarding the President. Once given this responsibility, such a committee would insure that the maximum resources of the Federal Government are fully engaged in the task of protecting the President, and would provide guidance in defining the general nature of domestic and foreign dangers to Presidential security.

2. Suggestions have been advanced to the Commission for the transfer of all or parts of the Presidential protective responsibilities of the Secret Service to some other department or agency. The Commission believes that if there is to be any determination of whether or not to relocate these responsibilities and functions, it ought to be made by the Executive and the Congress, perhaps upon recommendations based on studies by the previously suggested committee.

3. Meanwhile, in order to improve daily supervision of the Secret Service within the Department of the Treasury, the Commission recommends that the Secretary of the Treasury appoint a special assistant with the responsibility of supervising the Secret Service. This special assistant should have sufficient stature and experience in law enforcement, intelligence, and allied fields to provide effective continuing supervision, and to keep the Secretary fully informed regarding the performance of the Secret Service. One of the initial assignments of this special assistant should be the supervision of the current effort by the Secret Service to revise and modernize its basic operating procedures.

4. The Commission recommends that the Secret Service completely overhaul its facilities devoted to the advance detection of potential threats against the President. The Commission suggests the following measures.

(_a_) The Secret Service should develop as quickly as possible
more useful and precise criteria defining those potential
threats to the President which should be brought to its
attention by other agencies. The criteria should, among other
additions, provide for prompt notice to the Secret Service of
all returned defectors.

(_b_) The Secret Service should expedite its current plans to
utilize the most efficient data-processing techniques.

(_c_) Once the Secret Service has formulated new criteria
delineating the information it desires, it should enter into
agreements with each Federal agency to insure its receipt of
such information.

5. The Commission recommends that the Secret Service improve the protective measures followed in the planning, and conducting of Presidential motorcades. In particular, the Secret Service should continue its current efforts to increase the precautionary attention given to buildings along the motorcade route.

6. The Commission recommends that the Secret Service continue its recent efforts to improve and formalize its relationships with local police departments in areas to be visited by the President.

7. The Commission believes that when the new criteria and procedures are established, the Secret Service will not have sufficient personnel or adequate facilities. The Commission recommends that the Secret Service be provided with the personnel and resources which the Service and the Department of the Treasury may be able to demonstrate are needed to fulfill its important mission.

8. Even with an increase in Secret Service personnel, the protection of the President will continue to require the resources and cooperation of many Federal agencies. The Commission recommends that these agencies, specifically the FBI, continue the practice as it has developed, particularly since the assassination, of assisting the Secret Service upon request by providing personnel or other aid, and that there be a closer association and liaison between the Secret Service and all Federal agencies.

9. The Commission recommends that the President’s physician always accompany him during his travels and occupy a position near the President where he can be immediately available in case of any emergency.

10. The Commission recommends to Congress that it adopt legislation which would make the assassination of the President and Vice President a Federal crime. A state of affairs where U.S. authorities have no clearly defined jurisdiction to investigate the assassination of a President is anomalous.

11. The Commission has examined the Department of State’s handling of the Oswald matters and finds that it followed the law throughout. However, the Commission believes that the Department in accordance with its own regulations should in all cases exercise great care in the return to this country of defectors who have evidenced disloyalty or hostility to this country or who have expressed a desire to renounce their American citizenship and that when such persons are so returned, procedures should be adopted for the better dissemination of information concerning them to the intelligence agencies of the Government.

12. The Commission recommends that the representatives of the bar, law enforcement associations, and the news media work together to establish ethical standards concerning the collection and presentation of information to the public so that there will be no interference with pending criminal investigations, court proceedings, or the right of individuals to a fair trial.