"These actions were not always carried out on the direct order of the CIA or with its foreknowledge, but the Agency could hardly plead "rogue elephant". It had created an operations headquarters in Miami that was truly a state within a city—over, above, and outside the laws of the United States, not to mention international law, with a staff of several hundred Americans directing many more Cuban agents in just such types of actions, with a budget in excess of $50 million a year, and an arrangement with the local press to keep operations in Florida secret except when the CIA wanted something publicized."