Who is responsible for creating Section 31?

Question

According to CIA history, President Truman was responsible for the creation of the CIA, and according to the NYT, it was because of the unforseen attacks of Pearl Harbor.

The Starfleet charter states:

Article 14, Section 31 of the Charter made allowances for bending Starfleet regulations in times of extraordinary threat.

Right below that sentence on the wiki page it says:

This section was cited as the foundation for Section 31 even into the late 24th century.

So we have the why, but who created Section 31? Was there a specific individual or was it a committee?

Answer 1

The gist of Section 31 seems to be emergency powers combined with covert operations (and it's not unreasonable to assume Starfleet Intelligence is simply their public face, or at least highly related, given some of their equally clandestine activities later).

The major problem with Section 31 is that a lot of it has been written in retroactively (but not in a retcon way) so we just don't know the who. We know it existed in the nascent days of the Federation, but little about who actually set it up, or what it was meant to address. Remember, when we're first introduced to Section 31, they were highly secretive (DS9: Inquisition), but they've been less secretive at points in history (ST: Discovery season 2 deals a lot with them almost operating in the open, but only after a major war).

The only things we know for sure are

1. It was written into the Federation Charter as Article 14, Section 31. Whether they were trying to create or sanction this type of organization is unclear, because we know little about who wrote the charter or exactly when. Sadly, Article 14, Section 31 makes up the bulk of what we do know.

2. It was up and running in 2154 (20 - 30 years after the charter was established) when Section 31 had Doctor Phlox kidnapped (ENT: Divergence)

   ARCHER: Phlox was kidnapped. Starfleet would never authorise that.
   HARRIS [on monitor]: Reread the Charter, Article 14, Section 31. There are a few lines that make allowances for bending the rules during times of extraordinary threat.