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Federal investigators need only a “reasonable indication” that a crime has been committed to open an investigation, a much lower standard than the probable cause required to obtain search warrants. However, “there must be an objective, factual basis for initiating the investigation; a mere hunch is insufficient,” according to Justice Department guidelines.

When Mr. Barr appointed Mr. Durham, the United States attorney in Connecticut, to lead the review, he had only the power to voluntarily question people and examine government files.

Mr. Barr expressed skepticism of the Russia investigation even before joining the Trump administration. Weeks after being sworn in this year, he said he intended to scrutinize how it started and used the term “spying” to describe investigators’ surveillance of Trump campaign advisers. But he has been careful to say he wants to determine whether investigators acted lawfully.

“The question is whether it was adequately predicated,” he told lawmakers in April. “And I’m not suggesting that it wasn’t adequately predicated. But I need to explore that.”

Mr. Barr began the administrative review of the Russia investigation in May, saying that he had conversations with intelligence and law enforcement officials that led him to believe that the F.B.I. acted improperly, if not unlawfully.

The F.B.I. opened the investigation in late July 2016, code-named Crossfire Hurricane, after receiving information from the Australian government that a Trump campaign adviser had been approached with an offer of stolen emails that could damage Hillary Clinton’s campaign.

F.B.I. agents discovered the offer shortly after stolen Democratic emails were released, and the events, along with ties between other Trump advisers and Russia, set off fears that the Trump campaign was conspiring with Russia’s interference.