Savage wrote to him. These  letters were written on what appeared to be CIA letterhead. In a letter  written to Deacon on January 26, 1990, Savage signed the letter with the  title, "Assistant Deputy Director, European Operations." In a second letter  written February 7, 1990, Savage indicated his affiliation with the CIA was  with "Global Affairs." Neither letter contained any description of Savage's  job responsibilities with the CIA, nor shed any light as to exactly what he  did for the CIA.


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Monarch also submitted other declarations from persons who apparently  believed that Savage was with the CIA because of comments he made, or in  one instance because of his conduct in never allowing the individual to see  the contentskey question in the case,  even assuming the alleged agent Savage was an employee of the CIA, is did  he have actual authority to contract in the manner he did on behalf of the  United States Government. The United States Government employs close to  three million civilian employees.1 If all Government employees  could, of their own volition, enter into contracts obligating the  Government, then federal expenditures would be wholly uncontrollable. City  of El Centro v. United States, 922 F.2d 816, 820 (Fed. Cir. 1990). Thus, to  avoid such a situation, the law requires that a Government agent who  purports to enter into or ratify a contractual agreement that is to bind  the United States have actual authority to