At the Homeland Security Department, officials have repeatedly sought to use the security agency’s Internet and telephone databases and other resources to trace cyberattacks on American targets that are believed to have stemmed from China, Russia and Eastern Europe, according to officials. They have often been rebuffed.

Officials at the other agencies, speaking only on the condition of anonymity because they were not authorized to discuss the tensions, say the National Security Agency’s reluctance to allow access to data has been particularly frustrating because of post-Sept. 11 measures that were intended to encourage information-sharing among federal agencies.

In fact, a change made in 2008 in the executive order governing intelligence was intended to make it easier for the security agency to share surveillance information with other agencies if it was considered “relevant” to their own investigations. It has often been left to the national intelligence director’s office to referee the frequent disputes over how and when the security agency’s spy tools can be used. The director’s office declined to comment for this article.

Typically, the agencies request that the N.S.A. target individuals or groups for surveillance, search its databases for information about them, or share raw intelligence, rather than edited summaries, with them. If those under scrutiny are Americans, approval from the secret Foreign Intelligence Surveillance Court is required.

The security agency, whose mission is to spy overseas, and the F.B.I., its main partner in surveillance operations, dominate the process as the Justice Department’s main “customers” in seeking warrants from the intelligence court, with nearly 1,800 approved by the court last year.

In a statement, the security agency said that it “works closely with all intelligence community partners, and embeds liaison officers and other personnel at those agencies for the express purpose of ensuring N.S.A. is meeting their requirements and providing support to their missions.”

The security agency’s spy tools are attractive to other agencies for many reasons. Unlike traditional, narrowly tailored search warrants, those granted by the intelligence court often allow searches through records and data that are vast in scope. The standard of evidence needed to acquire them may be lower than in other courts, and the government may not be required to disclose for years, if ever, that someone was the focus of secret surveillance operations.