An independent investigation has found that imprisoned former Rep. Randy Duke" Cunningham took advantage of secrecy and badgered congressional aides to help slip items into classified bills that would benefit him and his associates. Cunningham's case has put a stark spotlight on the oversight of classified or "black" budgets. Unlike legislation dealing with social and economic issues, intelligence bills and parts of defense bills are written in private, in the name of national security. That means it is up to members of Congress and select aides with security clearances to ensure that legislation is appropriate. Federal prosecutors found that Cunningham accepted $2.4 million in bribes, including payments for a mansion, a Rolls-Royce and a 65-foot yacht, in return for steering defense and intelligence contracts to certain companies. Cunningham pleaded guilty and was sentenced to more than eight years in prison. Efforts to direct money to specific projects or interests, called earmarking, are common. But more than a dozen government officials and other experts...agreed that the process is vulnerable to abuse because of its classified nature. Secret legislation long has been a tool for pet projects. A Democratic aide on the Senate committee from 1985 to 1991 said classified bills are the perfect place to slip in provisions not scrutinized. Rarely do members of Congress examine the legislation, which is stored in safes in each committee's windowless, vault-like offices.

"