Steele Dossier: Origins, FBI Investigations, and Legal Aftermath
The Steele dossier is a collection of reports detailing alleged connections between Donald Trump and the Russian government. Compiled by former British intelligence officer Christopher Steele, the document became a focal point of intense political debate, intelligence scrutiny, and legal battles in both the United States and the United Kingdom.
Background and the Role of Fusion GPS
The origins of the dossier trace back to September 2015, when the conservative publication The Washington Free Beacon hired Fusion GPS, a Washington D.C.-based political research firm, to research Republican primary candidates. While this initial work was not primarily focused on Russia, Fusion GPS was later retained by the Hillary Clinton campaign and the Democratic National Committee via their attorney, Marc Elias of Perkins Coie. It was under this second engagement that Fusion GPS hired Christopher Steele to investigate potential Russia-related activities involving Donald Trump.
By July 2016, Steele had provided a report to an FBI agent in Rome. Throughout September and October 2016, he held off-the-record meetings with journalists from major outlets, including The New York Times, The Washington Post, and CNN. The first public reference to the dossier's information appeared in a Mother Jones article by David Corn on October 31, 2016, though Steele himself remained anonymous at the time.
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Key Facts
- Author: Christopher Steele, a former British intelligence officer.
- Funding: Initially funded by Fusion GPS, which was hired by the Clinton campaign and the DNC.
- FBI Relationship: Steele served as a confidential human source (CHS) for the FBI starting in 2013.
- FISA Impact: The dossier played a central role in obtaining surveillance warrants for Carter Page.
- Verification: The DOJ Inspector General found 17 significant errors and omissions in FISA applications relying on the dossier.
- Legal Outcome: Steele lost a UK defamation case involving Alfa Bank executives due to inaccurate claims.
Motivations and Relationship with the FBI
Steele stated that he shared the dossier with British and American intelligence officials because he viewed the material as a national security concern. Glenn Simpson, co-founder of Fusion GPS, noted that Steele was specifically concerned that Trump might be subject to Russian blackmail. In a 2018 ruling, Senior Master Barbara Fontaine described Steele's actions in sharing the material as being similar to those of a whistle-blower.
Steele's relationship with the FBI was complex. While he had been a confidential human source (CHS) since 2013 during the FIFA corruption case, the FBI's Inspector General later noted "divergent expectations," as Steele prioritized his paying clients over the FBI. In October 2022, FBI analyst Brian Auten testified that the FBI offered Steele up to $1 million to corroborate the dossier's allegations shortly before the 2016 election, a claim Steele disputed, asserting the funds were intended for resettling sources.
Post-Election Disclosure and Public Reaction
Following the 2016 election, the dossier's existence became an open secret in Washington. In December 2016, Senator John McCain obtained a copy and passed it to FBI Director James Comey. On January 10, 2017, BuzzFeed News published the full 35-page document, though it noted it could not verify the allegations. Donald Trump dismissed the claims as "fake news," and Vladimir Putin similarly denied them.
The identity of the author was revealed by The Wall Street Journal on January 11, 2017. Fearing retaliation from Russian authorities, Steele reportedly went into hiding for several weeks before reappearing publicly in March 2017.
Intelligence experts expressed varying views on the document's reliability. Former Acting CIA Director Michael Morell questioned the accuracy of the information because Steele used intermediaries to pay sources, making it impossible to judge the primary source's credibility. Similarly, former British ambassador Sir Tony Brenton described parts of the report as "shaky."
Impact on the Crossfire Hurricane Investigation
It is a common misconception that the Steele dossier triggered the FBI's Crossfire Hurricane investigation. That probe actually began on July 31, 2016, based on information regarding Trump adviser George Papadopoulos. However, the dossier became a critical component of the applications for FISA (Foreign Intelligence Surveillance Act) warrants used to surveil another adviser, Carter Page.
A December 2019 report by the DOJ Inspector General, Michael E. Horowitz, found that while the investigation had adequate predication, the FISA applications contained 17 significant inaccuracies and omissions. The report revealed that the FBI failed to disclose Steele's political motivations and ignored information from Steele's primary sub-source that contradicted the dossier's claims. One FBI attorney, Kevin Clinesmith, pleaded guilty to making a false statement after altering a CIA email to hide that Page had previously been a CIA source.
| Investigation/Report | Key Finding regarding the Dossier | Outcome/Impact |
|---|---|---|
| DOJ Inspector General (2019) | 17 significant errors in FISA applications | Identified failure to disclose contradictions |
| Special Counsel John Durham (2023) | Reports were "unvetted and unverified" | Concluded FBI could not corroborate substantive claims |
| UK High Court (Alfa Bank Case) | Certain claims were "inaccurate or misleading" | Steele's firm ordered to pay £18,000 per plaintiff |
| Nunes Memo (2018) | Dossier was an "essential part" of FISA warrants | Argued FBI failed to disclose political bias |
Legal Battles and Defamation Lawsuits
The dossier led to several lawsuits in the US and UK. Russian tech entrepreneur Aleksej Gubarev sued BuzzFeed and Steele, alleging the dossier falsely linked his company, Webzilla, to hacking. While BuzzFeed was protected by First Amendment grounds in the US, the UK High Court found the allegations defamatory but ruled that Steele was not legally responsible for BuzzFeed's publication.
In a separate case, executives from Alfa Bank sued Steele over claims they delivered illicit cash to Vladimir Putin. In July 2020, the UK High Court ruled against Steele, finding the claims inaccurate. Steele admitted during cross-examination that the allegation was incorrect, and his firm, Orbis Business Intelligence, was ordered to pay damages for violating the UK Data Protection Act.
Frequently Asked Questions
Did the Steele dossier start the FBI's Russia investigation?
No. The Crossfire Hurricane investigation was opened on July 31, 2016, based on information about George Papadopoulos. The dossier did not reach FBI headquarters until mid-September 2016.
Was the information in the dossier ever verified?
Much of the substantive information remained unverified. The DOJ Inspector General and Special Counsel John Durham both noted that the FBI was unable to corroborate the primary allegations contained in the reports.
What were the legal consequences for Christopher Steele?
Steele faced several defamation lawsuits. Most notably, he lost a case in the UK involving Alfa Bank executives, resulting in a fine for violating the UK Data Protection Act.
How did the dossier affect the surveillance of Carter Page?
The dossier played a "central and essential role" in the FBI's applications for FISA warrants to surveil Carter Page, though later investigations found these applications contained significant errors and omissions.
Who funded the creation of the dossier?
The research was conducted by Fusion GPS, which was hired and paid by the Hillary Clinton campaign and the Democratic National Committee through the law firm Perkins Coie.