WASHINGTON — After President Obama delivered a speech in January endorsing changes to surveillance policies, including an end to the National Security Agency’s bulk collection of Americans’ domestic calling records, John Napier Tye was disillusioned.

A State Department official, Mr. Tye worked on Internet freedom issues and had top-secret clearance. He knew the Obama administration had also considered a proposal to impose what an internal White House document, obtained by The New York Times, portrayed as “significant changes” to rules for handling Americans’ data the N.S.A. collects from fiber-optic networks abroad. But Mr. Obama said nothing about that in his speech.

So in April, as Mr. Tye was leaving the State Department, he filed a whistle-blower complaint arguing that the N.S.A.'s practices abroad violated Americans’ Fourth Amendment rights. He also met with staff members for the House and Senate intelligence committees. Last month, he went public with those concerns, which have attracted growing attention.

When operating abroad, the N.S.A. can gather and use Americans’ phone calls, emails, text messages and other communications under different — and sometimes more permissive — rules than when it collects them inside the United States. Much about those rules remains murky. The executive branch establishes them behind closed doors and can change them at will, with no involvement from Congress or the secret intelligence court that oversees surveillance on domestic networks.