The film opens with J. Edgar Hoover in his office during his later years. He asks that a writer, known as Agent Smith, be let in, so that he may tell the story of the origin of the FBI for the sake of the public. Hoover explains that the story begins in 1919, when A. Mitchell Palmer was Attorney General and Hoover's boss at the Justice Department. Palmer suffers an assassination attempt, but is unharmed when the bomb explodes earlier than intended. Hoover recalls that the police handling of the crime scene was primitive, and that it was that night that he recognized the importance of criminal science. Later, Hoover visits his mother, Anna Marie, and tells her that Palmer has put him in charge of a new anti-radical division, and that he has already begun compiling a list of suspected radicals. He leaves to meet Helen Gandy, who has just started as a secretary at the Justice Department. Hoover takes Gandy to the Library of Congress, and shows her the card catalog system he devised. He muses about how easy it would be to solve crimes if every citizen were as easily identifiable as the books in the library. When Hoover attempts to kiss her, she recoils. Hoover gets down on his knees and asks her to marry him, citing her organization and education, but his request is once again denied. However, Gandy agrees to become his personal secretary.
Despite his close monitoring of suspected foreign radicals, Hoover finds that the Department of Labor refuses to deport anyone without clear evidence of a crime; however, Anthony Caminetti, the commissioner general of immigration dislikes the prominent anarchist Emma Goldman. Hoover arranges to discredit her marriage and make her eligible for deportation, setting a precedent of deportation for radical conspiracy. After several Justice Department raids of suspected radical groups, many leading to deportation, Palmer loses his job as Attorney General. Under a subsequent Attorney General, Harlan F. Stone, Hoover is made director of the Justice Department's Bureau of Investigation. He is introduced to Clyde Tolson, a recently graduated lawyer, and takes his business card. Later, while reviewing job applications with Helen Gandy, Hoover asks if Tolson had applied. Gandy says he had, and Hoover interviews and hires Tolson.
The Bureau pursues a string of gangster and bank robbery crimes across the Midwest, including the high profile John Dillinger, with general success. When the Lindbergh kidnapping captures national attention, President Hoover asks the Bureau to investigate. J. Edgar Hoover employs several novel techniques, including the monitoring of registration numbers on ransom bills, and expert analysis of the kidnapper's handwriting. The birth of the FBI Crime Lab is seen as a product of Hoover's determination to analyze the homemade wooden ladder left at the crime scene. When the monitored bills begin showing up in New York City, the investigators find a filling station attendant who wrote down the license plate number of the man who gave him the bill. This leads to the arrest, and eventual conviction, of Bruno Richard Hauptmann for the kidnapping and murder of the Lindbergh child.
After Hoover, Tolson, and Hoover's mother attend a showing of the James Cagney film G Men, Hoover and Tolson decide to go out to a club, where Hoover is seated with Anita Colby, Ginger Rogers, and Rogers's mother Lela. When Colby asks Hoover if he ever wishes he had someone to keep him warm at night, he responds that he has dedicated his life to the bureau. Ginger's mother asks Hoover to dance and he becomes agitated, saying that he and Tolson must leave, as they have a lot of work to do in the morning. When he gets home he shares his dislike of dancing with girls with his mother, and she tells him she would rather have a dead son than a "daffodil" for a son. She then insists on teaching him to dance, and they dance in her bedroom. Soon after, Hoover and Tolson go on a vacation to the horse races. That evening, Hoover tells Tolson that he cares deeply for him, and Tolson returns the feeling by stating that he loves Hoover. However, Hoover claims to be considering marriage to a young woman twenty years his junior, Dorothy Lamour, he has been seeing in New York City, provoking outrage from Tolson. Tolson accuses Hoover making a fool out of him and then begins throwing insults at Hoover, and consequently they begin throwing punches at each other and cause grave damage to the hotel room in the process; they eventually end up fighting on the floor. The fight ends when Tolson gets an upper hand over Hoover, and suddenly kisses him. Hoover demands that it must never happen again; Tolson says that it won't, and attempts to leave. Hoover apologizes and begs him to stay, but Tolson only says that if Hoover ever mentioned another woman again, their friendship would be over. He then leaves, with Hoover professing love for him moments after.
Years later, Hoover feels his strength begin to decline. He requires daily visits by a doctor, and Tolson suffers a stroke which leaves him in a severely weakened state. Convincing himself that he overheard Martin Luther King, Jr. engage in extramarital sex, Hoover attempts to "racistly" blackmail King Jr. into declining his Nobel Peace Prize by writing a letter threatening to expose his sexual life. The attempt proves ineffective, and King accepts the prize. Hoover eventually begins to consider his mortality and tells Helen Gandy to destroy his secret files if he were to die, to prevent Richard Nixon from possessing them. When Tolson appeals to Hoover to retire when Hoover comes to visit him, Hoover refuses, claiming that Nixon is going to destroy the bureau he has created. Tolson then accuses Hoover of exaggerating his involvement in many of the bureau's actions and giving inaccurate details about some of the events he encountered during his time with the bureau as well, revealing that he didn't kill Dillinger, arrest Hauptmann, that Agent Sisk did; Hoover wasn't even at the scene, Lindbergh didn't shake his or Tolson's hand and insulted him, thus making Hoover regret hiring him. However, moments later, Hoover tells Tolson that he needed him, more than he ever needed anyone else, and holds his hand, kisses his forehead and leaves.
Returning home one evening after work, Hoover, obviously weakened, goes upstairs. Shortly after, Tolson is called by Hoover's housekeeper and he goes upstairs to find Hoover dead next to his bed. Grief-stricken, he gently kisses Hoover's forehead and covers his body with a sheet before walking out. The news of Hoover's death reaches Nixon, and while he does a memorial speech on television for Hoover, several members of his staff enter Hoover's office and proceed to rifle through the cabinets and drawers in search of Hoover's rumored "personal and confidential" files, but find them all to be empty. In the last scene, Helen Gandy is seen destroying stacks of files, assumed to be from Hoover's personal archive.
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