1. In indexing persons the intention has been to include all references to persons of significance for an understanding of the record, with the following exceptions: (1) the name of the Secretary of State or the Acting Secretary of State appearing as signer of outgoing messages unless there is a clear indication of the Secretary’s or Acting Secretary’s direct participation; (2) the names of American officers appearing merely as signers of messages to the Department of State; (3) the names of persons to whom documents are addressed.