Cole believes that the FISA is based on an untested (by the U.S. Supreme Court) assumption that FISA searches can be performed under a lower showing of suspicion than would be mandated for criminal searches. He believes that the term "foreign power" is broad enough to " any political organization a majority of non-citizens", and though they must show reasonable evidence of a crime when targeting a U.S. citizen, the agency must only show evidence that a foreign person is an agent of a foreign power. He states that FISA was based on an "administrative search" exception to the Fourth Amendment, which relaxed the probable cause requirement for searches "where the search serves some special need beyond criminal law enforcement". However, Cole believes that the administrative search exception does not apply to criminal law enforcement, therefore when an investigation turns into a primarily criminal investigation the traditional standards of criminal probable cause would then apply. The crux of Cole's argument is that,