ORGANIZATIONAL HISTORY OF CENTRAL INTELLIGENCE AGENCY, 1950-1953

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP64-00654A000200250001-3
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 147
• Document Creation Date: December 16, 2016
• Document Release Date: March 18, 2005
• Sequence Number: 1
• Publication Date: January 1, 1953
• Content Type: LIST

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CHAPTER I
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Orit;A)7IZ ONAL lirSTOIT
crirvAL INTRuiroluicz males,
1950-1953
Chapter; Paress
I. Background, 1946-1950 53
I/. Major Organisational Revisions 93
III. Inter-Agergy Coordination Problems 48
IV, The Conduct of Overt Collectices 106
V. Development of a Reference Center 84
VT. Problems of Scientific and Technical IntellIgence 80
N'T/. Economic, Geographic, and Boole Inte114,ence 83
VIII. Current Intelligence and Hostility Indications 59
17. Production and Coordination of ratelligence Est 162
T. The Conduct of Agency Business 189
AMMON'
A. President Truman's Letter, January 22, 1946
B. Selected Organization Charts of CIG and CIA, 190-53
C. Directives of the National Intelligence Authority MAIO
D. CIA Legislation of 1947, 19h9, and 1751
E. NSC Intelligence Directives and MI Directives, 194743
F. List of OIC Projects, 195143
G. Missions and ?unctions of CIA ?Moos, 1950-53
He List of ORR Reports, 195243
K. Descriptive List of ONE Estimates Projects, 195043
L. List of osI Projects, 194943
H. List of TAC Projects, 195043
N. Index
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CRIzATIoAL 111,1.37071. o OIRNIRAL
,E AGACT, 1950-1953
Contilnts
Theories Relating to CIG
Sonars' Ideas of Organisation, 1946
Pegs
1
4
Modifimition Required by NTA4
8
Tho Personnel Problem, 1946
9
Vandenberg's Decisions and Actions 1946-1947
11
Coordination of Activities Under Vandenberg, 1946-1947
17
Fapansion of ORX, 1946,1947
19
Organisational Changes in CTO, 1946-1914
23
Change of Commend and the National Security Act, 1947
25
NSC Interpretation of the Law, 1947-1948
27
Effects of the Interpretation' 1948
31
Development of the Hillenkoetter Organization, 1947-1949
34
Coordination Problems, 1947-1950
35
The ORF Problem, 1948-1949
39
The Dulles Committee Recommendations and Their Reception
by the Agency, 1949-1950
41
The 1949 Ammey "Reorganization*
?
44
The 1950-1953 Reorganization in Relation to the 1946-1950
Background
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9h6-1950
S.s.me of the Present 3tgdy
of this at
within cen-oaln limits-
tions, anganisational devlopssnt of Central Intellierk:e nd
of the entra1 nte1lt:?ence Agency using as a chronological guide
the vitriol covered by the a:minial?ration of General 'elter
::mith (October 7, I950-February 26, 1953). In order to Troika clear
what loneral Zmith was able to accomplish, it is desirable to trice
very briefly the main events in the development of ,3entra1 Intelli-
gence over the ibur years that preceded his term in office.
,r,f
Theories'el.ting to CIO
:ouers, first nireetor of entral telltene
(January ?2, 1911.6 - Julio 10, 19.46) had an
i1vantar that was shared
by neit,h r of the two ;men who immediately qceedad hi, in being
thoroughly ,Artilinr with the planning that underlay the establish-
ment of 7'.'ontral e. As assistant Arector f Aaval
Intelligence during the war, he had been in position to know at
first band te inner wor4iws, not only of the Office of Navel
1 This study is not concerned with t.he oompo nts of CIA under
ation to
the vput' lrector (Plana), except to mention them in
the "overt" activities of the Agency.
ZI
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Intelligence, but of the othSai1ttary intelligence services, the
?lice of Strategic Services, and %he Joint Intelligence 7ommittee.
Nring 19)45, he had worked closely ukth various groups that were
instrumental in bringing a plan for Central /ntelligence into exist-
ence. It was Souers, as a ememittee of one who had written the
intelligence recommendations for .the committee on the unification of
the War and Navy ,,)epartments, headed by Ferdinand Y.berstadt (June 1945).1
With such a background, Sours well understood the nature of
the Central Intelligence Or created by the President's memorandum
establishing a central intelligenoe system, dated January 22, 19146.
Aside from designating the Secretaries of Stet*, War, and Nary, plus
the President's personal representative, as the National Intelligence
Authority, the essential clauses in,bbis nemorandum directed the
newly authorised Arector of Central Dtbelligence to do three things:
to distribute within the government "strategic end national policy
intelligence" resulting from the correlation and evaluation of
intelligence relating to the national security; to plan for the
coordination of national intelligence activities; and to perform
1 See H5 interview with S. W. Souers, Jan. 25, 1952; in oitrtilis
files.
2 See Annex A, below.
3 For comments on the meaning of this term as understood by those
drafting the basic documents for CIO, see memorandum from L. L. Montague
OR1;, to Chief ICAPS, Feb. 6, 190; in 0/DCl/HS files.
2
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services of cosnon concern to intelligsnce where indicated. Souere
was fully aware or the limitations implied under these directions.
For whatever form "strategic and national policy intelligence
was to take, it was certainly going to be dependent on sources of
information controlled by the Deportment* of Auto, War, and Navy.
These departments collectively were aiso--in the persons of their
secretaries (the National Intelligence Authoritly)--the controlling
authority for the Central Intelligence Group. The assistants to the
Group's Director, who were going to do the actual "correlation and
evaluation" of intelligence, were to be representatives of these
same departments and further responsible to the departmental !3ecre-
taries through their chiefs of intelligence (the Intelligence Advi-
sory Board). The concern of these assistants, however, was not to
be with the departmental aspects of the material they "correlated"
but only with its "national security" aspects Honce, their true
function was first to determine what intelligence was significant
with respect to national security; then to evaluate it in terms of
national strategy and policy.
The same applied to the coordinating function and to the
establishment of "services of common concern." The overriding
No separate collection service for CIO had been planned at this
time. The Strategic Services Unit, as a caretaker organisation for
the liquidation of OSS, could not be expected to furnish adequate
intelligence for CIO
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consideration w the "national security"- OS intelligence was related
to it. Wartime and postwar experience had indicated that the govern.
-
mental intelligence structtee1ted not been ideally designed from this
point Of view. The object of lioupordination" was to modify the struc-
ture, or redesign it if necessary, to the end of making it more ade-
quate for the specific requirements of national policy and strategy.
If this required a centrally directed collection service, or a pool-
ing of foreign language translation resources, or any sort of major
or minor adjustment of the complex of the governnentel intelligence
as it existed in 1946, then the edjusteent should be made. Hut it
would not be made by fiat of the Director or arty other individual
(short of the President), but by the NIA. The primary function of
the rirector and his associates, doe/grated as the Central
tateilt-
genc. Iroup, was to recommend to the CA What should be done.
&suers, Ideas. of Organization
The nirector, in otter words, wee tbe representative of the
National IntelAzence Authority in matters of intelligence having
to do with the national security. He not only worked for and with
the National Intelligence AuthoriVY, but was part of the intelligence
structure that the Authority collectively comprehended. His "Group"
consisted of "persons and facilities" assigned to his by the National
Intelligence Authority from its constituent departments. lie had no
1 Feb. 8, 1946; in Annex C4 below.
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approprirtion nor any right to cmoley or dismiss independent of the
MIL Under the concept outlined above, eve c did not need
those rights. "he :;entral lutelliteastOlamoup was a part of, not
apart from, the departmental- intelligence structure thA had
emerged from the war.
in the opinior of -:euttir hitsself: "ile set out to establish
thee ,:roup as a small 1-roy of experts drawn from the severel 1!,part-
mEnts, and servinp? them." qow tho consept would work out in ;)rac-
ticw rumstned to be seen. In thaory at least, there was no mason
why a Jeptral rttelli- nee ,I.roup directed in accordance with Fuch
a concept should not eccomplish the objectives for which it wAs
designed.
V,ouers organised the originel Central Intelligence 'irodp
accordingly. As organisation consisted of two unite: a i',er,tral
leports ,Aaff, and Central attuning ttarr.2 The first of these
vas to discharge the Croup's responsibilit:, with respect to cor-
relation and evaluation of national intelligence. The other was
to deal with the 4coordinetion of national intelligence activities.
;.ach of these staffs, of course, consisted of person' assigned
from and paid by the departments represented in the National
1 italics our. z,eil Historical Staff interview with 4. !;ouers,
Jan. 25, 1952, :ei;fe 15; in 0/:WNS files.
2 bee ?'nnex Fis bel.
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Intelligence 'uthority. The h
directly to Le Areotor of Coitral inte
ff, however, "report
once.
The :entral planning Aliff (early Februaey - July 20, 1946)
had the larger share of the 'mediate work because any important
problems concerned with postwar intelligence activities wore pressing
for immediate solution. The task fusing the Plans 4itte:f wee, in effect,
to make recortiunatione as to how the intelligence structure that
had emerged from the war night become better fitted to postwar needs.
PAready, in March 1946, little more than a -Ionth after ,entral Intel-
ligence ad even been set in otion the Staff was
total of some eleven prob1ets, 1e11 of them demand
tling with a
lutions and
1 These were;
a. survey of all existing facilities for the collection of
foreign intelligence information by clandestine methodic
b. Survey to determine what *overage of the foreign language
press in the United States is desirable for intelligence
purposes, and how the coverage should be obtained.
c. ,I.ervey of the collection of intelligence in L;hina.
d. :?_xamination of the problem of the Joint Intelligence Study
bitching Board and determination whether there should be
any change in its supervision and control.
e. ..)tudy of Foreign Broadcast Intelligence 4irvice--where it
should be placed, etc.
f survey a intelligence available in the United :..tates from
colleges, foundations, libraries, individuals, business
concerns, and sources other than those of the .Jovernment.
g. survey to determine need for index of U. S. residents'
foreign intelligence information.
h. .Audy ofi leen-
nections abroad which might produce foreign intellig nee.
1. Stud of problems of psychological warfare.
J. Survey of the adequacy of the intelligence facilities
related to the national eeeurity.
k. Ce-pilation of all types of faetuel stretegic intelligence
on the U.,Se.
:.roa records of the CPS in 0/XI/HS files.
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none offering an easy ene, pertAr boosausil each of them required
multiple negotiations, and the agreeleet4teach agency concerned.
. ,
re agreement vas not fortheemling, resort would be to the
Nationel intelligence Authority itself, tut there could hardly be
a die osition to ask the corsisejas of 6tate ,'Arid Navy to
deal personally with eeoh problem that mi ht te facing the entral
intelligence Croup. This meant thz,t, the activities of the lane
taff would be likely to reduce more discussion then solution.
In point of fact, the ;lens Staff, instAtd of providing a quick
succession of solutions, left of its problems still in sus-
pense after five months.
The '.;antral Reports taf, on the other hand, had essentially
only one problem. This problem--how to develop strategic and
national policy intelligence for use by the resident and the
National intelligence Authority?was obviously not susceptible of
immediate solution, as certain of the planning problems inherently
were; but given time, it was theoretically possible for the Staff
to construct the necessary apparatus whereby this type of intelli-
gence could be produced. The construction of such an apparatus,
however, presupposed: (1) a collection system capable of suiport-
ing a national intelligence effort; (2) research facilities ade-
quate to interpret the material collected; end (3) staff "estimators"
of the highest quality obtainable from or to be acquired by the
agencies making up the Central Intelligence 7,roup. Logically, it
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would be unwise for the 5 to begin se serious n tase RS furnish..
ing strategic and national policy inte111gente until at last these
requirements been met.
lodification inquired by NIA-2
:!fore the.::eports taff had even been formed, however,
,renid4nt e.sirel for a centrully produced daily tigent of
all important incoling intelligence had been jven substance in the
2nd Arective or the ettionel intelligence ;uthority (e February 1946)1
4All the task of furnishing this dizent had been ahsigned to C,!t5. The
result was to impose upon a Staff established with e view to drawing
deliberate conclusions from the evidence provided by intelligence, a
Pattern of activity of an essentially different character. The question
is not ao rauch whether the functions of current intelligence reporting,
and those of drewing final conclueione from intelligence should have
been lodged In the same office; but rather whether the immediate
and continuous de-iand created by daily reporting at this te in
the tarCle develop tent would necessarily convert it into a current
intelligence :72.eup regardless of any deeires or plant to the con-
trary. Without division and enlargement or the staff, there
would be little time for n orderly- development of a program for
1
:(3e Astorical 3taff interview with S. Sonars, Jan. 25, 1952,
?ale 9-10; in 0/LJCl/J files.
2
ove Annex below.
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faltellionce estimates while daily curreatAstell g nee had to be
deievered.
Indeed, the uroiney or the kilesident's request left insuf-
ficient time even to make adequate prepara%ione fur the daily bul-
letin itself. The :ientral lane 3Wf had one week (6 -
:Lebruary) to word out all the details involved in preparation of
reliable current intelli 1gende on a national bezia. Thereafter,
the demands of the daily summary necessarily continued to take
erecedence over all others besetting the rteporta 6te f. von two
years later, nen the etaff hod become a large office of revearch,
this continued in large eeaaurs to be true .2
The :enamel Problem
The other problems were any, bat the one Viet trenscended
them ell was personnel. The process of "correlation end evalua-
tion" which Lc:lc:kneed peculiarly to the aports btaff, required
persons with e type of mind And experience rare in combination.
in order to acquire such persons, eccordiros to the ireotives? the
.1roup uet look to the cgenoiee under the 4ational intelligence
iothority, but thu ,roup had no power to do more than request trans-
fer. 4th reset to persona of outstanding competence in intel-
ligence, the members of the NIA were not necesserily anxious to
grant suc) requests. eence, there took place all through 1946 and
1 The first issue of the iaily Summary was published Yob. 15, 1946.
2 jee Avipter VJI, below.
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into 1947 a determined but not very aucC.oeful effort on the part
of the Reports ,tarf to acquire ,the people it n?eded.1
In lis final report on June 10, 1946, on his ueparture fres
ecmiral :3ouers singled out the personnel problem es a vital
one calling for solution. ae pointed out in general, however, that
during the four no ths just passed a good deal of progrer had been
made toward laying the groundwork fOr Central Intelligence.2
Souers left to kneral Wert S. Vandenberg, his =coos r,
an organization consisting principally of the two Staffs just
described, plus the nucleus of organisations concerned with the
dissemination function accorded to CI, its security, and such
internal ac!ministrative probaose as mi ht nrise. The latter,
however, under the Ironp concept in force, would be largely a.
,3
matter of inter-agency liaisons,
As Somme left it, CIO was still a body within the NIA
intelligence structure. It could 'sally become an entity apart
from the Aroup if the Authority were to decide that the problem
of poeticar intellizence could best be solved by that nteane, or
it could develop an a coordinating mechanism for the total struc-
ture of which it was a part.
1 See it interview with L. L. !ontsgue, April 1, 1952, in
2 Digest of (,:10 ,Togress $eport, June 7, 1946, in files.
3 Because CI, must look to the IAD agencies for funds, personnel, and
services.
files.
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wie and (cue=
During the eleven montne
1946 - May 1, 1947) when
he held office as Director of Centraf.intelligenee, Oeneral Anyt L.
Vandenberg made deeisions end obtained agreement' that had the
effect of radically altering the theory and the structure of
Central Intelligence. The mostiportant of these decisions were
made and carried through daring Vandenberg's first three months in
office.
The principal and basic dee
a&o concerned the responsibility
of the Director with respect to the "
intelligence" estimates that mild be
rategic and national policy
he product of "correlation
and evaluation" of intelligence relating to the national seoarity.
Although these estimate" would constitute but one function of the
entral intelligence Group, they were the function- that, in $ sense,
oomprehended the rest.
Inasmuch as the estimates were to be pre cad by the G sup,
they would be the product of lrolip effort end thus of the community
of intelligence agencies under the NIA. As such, they could be
rendered in the name of the Group, the Q'roup as e whole being
answerable for them. Or they could be rendered in the name of the
Director of 1:entra1 Intelligence who alone would be answerable for
than. From the point of view of an official using the estimates,
the difference might not be great. rem the point of view of the
producer, the difference might be considerable because sole
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r-spanitibilit for
tie means of productlon.
Aocordin to :lameral
ed sole sit - MAW
rg, "Yationa
estimates . . . hed to be the opinion of the Director." e conceded
the riFht of his coil ties on the Intelligence Advivory hoard to
enter contrary opinions if the, chose, whicn he .would feel duty
Lound to forward along with the official estimate*. but the esti-
mate itself would be his, and he would stt,d responsible for it.
The reason given by Vandenberg wee that his appointeent an lirector
of :1,7entral Intelligence constituted an order from the President of
the United tates, which order entailed all the responsibility of
command.2
Fundamentally, it was 14112dOnberg's attitude toward the
Axector's responsibility that dictated the three demands that he
successfully placed before the National Intelligence Authority
between June 2e and September 5, 1946; for the right to collect
foreign intelligence apart from the departmental collection services,
for the right to conduct intelligence research, and for the financial
independence necessary to maintain control over the persons engaged,
1 -
redeceseor of the Intelligence Advisory k:ommittee. Authorised
by are. 7 of resident Truman's letter of Jan. 22, 1946 (see Annex A,
below) to consist of the ". . . heads . . of the principal agencies
of the tlovernment having functions related to the national security
as determined by the National Intelligence Authority."
2 ersgreph based on Vandenberg's own ststelAents. See astorical
Staff interview with Vandenberg, March 17, 1952, in 0/DC1/0 files.
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in those and other set itt e
only t;le :it two will be
, Alt u;,;4 all of these were important ,
dered 4ere.1
-402
,-e --17ineiPlef of having research eonduoted by .;'10 was approved
in '-ne %rootive or the intleaaL,Zatelligenoe Authority, on
July 1/46.2 rolevaot :eraraph; stat,d Lhats
tas fUnetions specified in zmragreph
3-a of the -resioent's letter, the; -arector of ;entral
_intelligence is neroby authorised to undertake such reeeereh
and anolysie av may be necessary to determine what functions
in t'le fields of national security intelligence are not
being presently performed or arc not beim.; odoquately per-
formed. Based upon theme determinatione, the Director of
Central intelligence may centrals, such research and
analysis activities as may, in ble opinion and that of the
appropriate member or members of the IntelliKence Advisory
Eoard, be ,wre efficiently or effectively accomplished
centrally.?
Literally reed, this paragraph is little more than e state-
ment of the obvious; perhaps even a redundant statement in view of
See footnote, page 1, above.
2 See Annex below. Tho officers approving NIA-5 were: ..man
Pcheson, ,'ctinz Secretary of State; Aobert P. Patterson, lecretery
of tar; John L. Aalivans odting Secretary of the Navy; and Antal%
D. Leahy, Special Representative of the President.
3 liee Annex C, below, paragraph 2.
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the elready-statec function ef Gentrai int./
igenc
4coordinate
intelligence ketivities,4 and Wperfora eervicee of co on concern."
Manifestly, survey of research activities would be "cuoreination,"
while centralization of some of them in 4 would create a 'service
of co len concern."
The action taken by oral iandenberg in response to the
oirective, weever, tended
beyond its literal terms, for he
proceedee at once, apparently without serious ooneultati n with the
1
LAP to establish a full-ecale research activity within CI-4 by
expansion of the 'entral moporte 6taf:C. This action wts in line
with--if not necessary to?amoral vandenbergle concept of the
Arectorle reeponsibility. The flaw in the arrangement was its
incompleteness. in the nature of thing*, it would be a long time
before the means either of collection or of interpretation could
reach sufficient maturity to constitute a firm basis for the exercise
of individual responsibility by the 4iroctor Or Central 4ntelligence.
In the particular nature of the pert/miler case, no central system
of intellizence collection or interpretation would be likely to
become self-suflicient short of a centralisation that would have
iliatorical examination of pertinent docuiants,has disclosed
no evidence that leneral Vanlsaber coplisd with the literal
term' of niA-5 in this regard.
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the effect of *boltehjn or incor'
ii
other intelligence
agencies. In the absence of such an un]ikei.y and radical develop-
ment, the central research organisation could only eserge on a
per with Agency research organisations and in. direct conflict with
their activities.
Vandenberg's interpretation of Nit-5 was also certain to have
an effect on ocoordination" of estimates. in Vsedenbergls view,
as. ha been noted, national eetimatee were to be his alone to
which t.e . iP had a ri ht to eater a contrary opinion. In
pree-
tice, however, this theory would call for unilateral production
of estinates by CL1 which would be submitted, ,without the neces-
sity of discussion, to those who had the PU:ht of dissent. 'tach
a practice would have rIquired GIG to have independent reaources
for the production of estimates, which in fnct it did not have.
in point of fact, then, consultation would be necensary. The
actual degrne to which the WI deuld nake his opinions prevail
would depend upon the authority with whieh he could speak, which
would be circumscribed in accordance with the limitations of his
organisation ond thus of hie independent knowledge. Hence the
irector's position would ultimately become one in which he would
either have to: (11 accede to any contrary opinions of his contemr-
poraries; (2) take the risk of maintaining a position of whi.n he
could not be fully sure; or (3) find the means of more complete
control over the sources of intelligence estimates. Vandenberg's
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SIMMS in beine made "emecu
"Oa
U of the ele on bruary 12,
1947, eee a move in the direetien en control, whose efficacy,
however, would depend on tne extent
his newlyetound power.1
which the ireotor pressed
Financial independence?the th1d element of eandenbergis
series of demanda noted above-..was a part of the same development.
Fetablishment of independent oellectien sad research under the
ireetor required that the eireotor be able to control personnel
engaged in these activities, which he Gould do only il tney were
in his employ. The method of assigMeRat of personnel tram the NIA
departments for duty with the ereup would not serve this purpose,
for personnel so assigned would always be under the ultimate con-
trol of their parent departments.
,oquisition of financial independence rzowaver, ha u another
important effect; it tendede-even beers the eational ,.ecurity
Act, was passed in 1947--te create a central intelligence "agency"
as opposed to a ceordinating "group heroes previously there
had been no need of a full-scale administrative structure,
1 Briefly, at the ninth meeting of the eie4 the Authority approved
the statement that the DI should "operate within his jurisdiction
as an agent of the Secretaries of State, ear, and Havy," so that
his decisions, orders, and directives "should have full forte and
effect as emanating from the ifearetaries." eith this power, Vandenee
was theoretically in position to direct the work of the Ohiefs of
Intelligence in the three departments. uuring his three remaining
months in office, however, he seems to have taken no advantage of
this authority.. Admiral Allenkoettero his successor, voluntarily
surrendered it at the tenth meeting of the PIA, June 26, 1947. See
minutea of 9th and lOth meetings of the NIA in eitZI/HS files.
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there now was a requirement 1.6141 in the long mu, could only be
mat by fully staffed dinje'sje officals of diverse types con-
trollsd by t.,114 working for ,antral Intaaigenoe as an entity
apart from the .roup.
,A)ordinstien of Activi
The decisions and antics Of CAneral Vandenberg so far discussed
concerned hie functions with raMpoct to "correlation and evaluation"
and "services of common conosrn," but not the tIard function of
"coordination of intelligence activities." Vendenber4's insietence
on beirm made "executive agont" of th0 National Intelligence Authority
any indicate that he hoped ultimately to be in position to coordinate
these activities by direction, bat st the outset of his administra-
tion he dele4ated this function to an interagency committee. Tho
OOMMitted WC3 ziimirently hot foread with this exclusive par e in
mind, however, for according to Vandenberg's own tettimouy BOAC six
yes later, what he intended prinaril;,, was not so much strict
coordination, As a eana of transai,ting business with and through
the Intelligence Advisory Board) iihatever may have been the
arector's intentions in this regard, the fact teczt the new committee
superseded the old :Antral Plans Staff eant alAost certainl;f that
it would perfOrm the eoord.ating flunctioD by inheritance from iti
predecessor if for no better reason.
1 3.ses Astorioal f:iteff lnt.rview with A. S. ';eudenterg, in
0/YIPS files.
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The new organisation was called the "Intcrdepartental
Coordina ne and Planning Staff* (ICAPS). Like the Central Plans
Staff, it was primarily an interdspailerentel colarrittee. It had
one member each from the departments of tate, War, and Navy, plias
one from the Army Air Force. The State -apartment representative
was chairman. members were appointed to the Group from their par-
ent departments, but reported directly to the r!irector of Central
Intelligencs?
There was one marked difference between the old and new
staffs, however. The Chief of the Plans Staff had been, in effect,
en Assistant to the :tractor et Central Intelligence for the pur-
poses of studying problems and proposing recommendations. But ICAPS
was placed in the position of attempting simultaneously (a) to
represent the interests of several departments as respecting their
status under Central Intelligence; (b) to represent the Director
of Central Intelligence in his dealings with these acme departments;
and (c) to exercise supervisory powers over the Central Intelligence
Group conceived as something separate and distinct from the rest.
such a complicated function would have been difficult for any group
to discharge
'MAPS, in short, became a focal point of controversies; yet
in a weak position with respect to resolving them. This continued
to be so until neneral Smith, late in 1950, appointed an assistant
for coordination who could concentrate his attention entirely on the
I 18
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one aspect of Central Intelligarnehleh had to do with suggesting
and attempting to bring about snahaledifications of the intelligence
structure as the national security might seem to require.'
Expimeion of ORE
The same distinction between "Oroup" and "Agencies,' that has
been observed in the organization of ICAPS became equally evident
as the Office of Reports and attiiaW.2 emerged out of what had been
the Central Reports staff. In thiscase, the organisation was
entirely within the nroup, but its nature was such that it promised
to duulicive (rather than complement) functions already lodged
in the "Agencies". Under the second end third 9/rectors little if
anything was done to avert the transformation of the Central Reports
ttaff into a large, independent office of research.
At the time when the Fifth NTA Directive had been approved,
the Central Reports Staff had already planned to acquire experts
in geographical areas for purposes of interpreting current intel-
ligence. The basis for a regional organisation was already present
therefore, and could easily be expanded, given a larger group of
people and a somewhat more elaborate sub-organisation. Thus, it
would become possible not only to have reference to specialists for
1 That is, the Office of Intelligence Coordination. For a fuller
discussion of !AP, see Chapter III, below.
2 02ls name in July of 19146 was the Office of Research and Evalu-
ations; later, it was changed to Office of Reports and Lstimates.
1 19
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purposes of undilretanding Jamming i omaticn on a currentbasis
(as had originally been intended) but to build up files A
pedal
competence for interpreting the whole body of intelliglnce acquired
by the Group in relation to national security. As a result, it
would become theoretically possible, within the compass of one Office
to deal with almost any intelligence that related to the national
security.
The tendency to centralise within this Office did not, how-
ever, end here.1 To the usual area divisions were gradualty added
so-called Panotional divisions which included a group alecialising
in various types of economic intelligence, and *mother with scien-
tific intelligence. Various forms of ors,' and visual intelligence
were included within the Office. "Nieto" inteLdeence (to become
the National intelligence 5urvey) was centered in the Office of
Reports an timates. It seemed logical, furthermore, if the main
underlying activity of the Office were to be research, that it
should also have facilities for reference. Thus certain of the
functions ultimately included lathe Office of Collection and
Dissemination, such as the library and the biographical register,
were at one time placed under the management of the Office of
See Annex 13 for schematic o
ion of ORE
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Report.s and stimates. Other activittie that needed organiutjonal
placement were from time to time oddod to ORE.2
There was not necessarily any flaw in the organizational
principle involved. It merely meant, ss the organisation developed,
that the Director had delegated a number of diverse functions to
one of his assistants. Assuming that these functions had to be
discharged by the Director, it was theoretically immaterial whether
they fell under one assistant or many. The problem was for the
person or persons handling them to make Mire that each function was
kept separate in so far as it was important not to confuse it with
the others; while making sure that all functions were so performed
as to make theta mutually contributory the goal. of providing ade-
quate adaccurate Intel /genet relating to the national security.
In theory at least, such a task right have been more appropriately
handled by a single directing head than by several separate Assistant
:1irectors whose efforts would have had somehow to be synchronized.3
hatever Pa/ have been the virtues or defects of tile new
research organization as a component within Central Intelligence, it
1
See ORE "Mission" as approved July 23, 19147, Pare. 9; in oiD-Vtis
files. or further discussion of the developments of Central Infer-
ence, see Chapter V below
2 For example, the "duty officer" 24-hour watch, when the need
for it was perceived, bec?=me the responsibility of O. That
Office furnished an officer to stand duty in the Director's office
overnight and an week-ends until fall-time duty officers were
acquired, who also became part of ORE.
3 The same decision was, of cour, made again with the formation
of the Office of n if in 1952.
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was viewed with some alarm in the 5tate and tefense intelligence
agencies. If Central Inelligenoe.were to have nn omni-competent
research staff to engage in all activities normally undertaken in
home-office intelligence operations whose limitations were only
those covered by such an all-inclusive term as ?national security',
the chances for duplication were exeellent.I The State nepartment,
for example, considered itself the preperly constituted authority
on political intelligence; yet thin could not help being one of the
principal fields in which the Office of eports and Fstimates must
specialise. Both ftate andAritary agencies were vitally inter-
ested in economic intelligence* which the central group also pro-
posed to study. The military agencies and the Atomic orgy Com-
mission had special claims on scientific intelligence. Fitton the
purely military field was not entirely exempt if Central Intelli-
gence WAS to receive military field reports, and be manned in part
by military officere.2 In short, the question was inescapable--
supposing that the new Office developed as it certainly promised
to develop--why the Agencies originally associated as part of the
Aontral Intelligence Group should continue to support research
operations which would be duplicated in Central Intelligence; or
1 see, for example, memorandum from L. L. Montague to DCI,
Jan. 190, in Which he remarks on-justified alarm in IAB agencies.
2nuring its early development, 01 7. had also a special panel to
aid in coordination and research on military affairs.
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conversely, wily .entral Intelligence should engage in independent
research so long as the Agendas collectively were doing it.
In spite of this inherent opposition, the Vandenberg adminis-
tration went ahead with its plans for a large central research unit.
3y Vey 1947, when Vandenberg retired, the Office had 2eo members as
contrasted with the seventeen who had originally constituted the
central leports !ltaff.1 This rapid growth, plus the multiplication
of functions accorded the Office was further complicated by the
fact that much was naturally expected of an organisation that
appeared so universally competent. The Office was thus called
upon to comply with a large variety of requests which it attempted
to fulfill oven in cases where it obviously lacked the necessary
resources.2 This was the beginning of the preoccupation of the
Office with what the Du3.1es Report in 19119 criticised as "miscel-
laneous research and reporting activities." 3
Organiaationel Changes in CIO
Meanwhile, the newly-found responsibilities of the Central
Intelligence Flroup called for a more elaborate organisation of the
group itself, for under the circumstances, the simple two-part
1 -
See
OT P
113 Reports, in 0/DCTAIS
2 See, for example, memorandum from E. K. Wright to MVO
Jan. 12, 190, in "SR" folder, in 0/OCIAL9 files.
3 See Dulles Report, p. 81,
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scheme adopted by Almirel !iouers wee obsolete. The orgAnisational
chart of the 'entrlt Tntelligense Group dated Ju 19L7 19L7 displeyed
forty-five "hoe" as contrasted with thirty fcr. November l9V or
ten for July 19b6. The July 19/!6 chart had been content with
settiih fortn the general functIons of the Arector, the Tnterde-
partrental coordinating and Planning Staff, the nffices of Tpeclal
Operationsl and of 9esearch and Bvaluation;2 an Office of t.;ollootion
and one of 'Asserination; and en "Executive Office", the letter
being generally chargee with adMinietrative Vunctions. The oven-
bar chart, which Indicated sore sub-organisation of the various
offices, now combined collection Red dissemination into one office,
had made a place for an WCffice of feeurty", and Indicated, =der
the "rxe utive 7,taff," a Personnel and Administrative Iranch, and
an "Advi3ory (ouncil". The July 19h7 chart (the last under the
Iraup) had made no essential change except to add the office of the
Ieneral Counsel and to expand the Ii_xecutive nter to the extent of
giving it An "Fxecutive for Inspections and Security" and an "Fxecu-
tive for Zolministration and )4anagement". The latter Office was
subdivided into a tudget and Finance Th.anch, a Services lranch, a
Personnel Firanch, and a Management Branch.,
1
Established October 17, 19h6. aee Chapter TV, below.
2 First name of Office of eports and Fstimates; see p. 19,
above, footnote No. 2.
3 ecito Annex St below.
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Change of Command and the National Fecurity Act
General Vandenberg's various neuvora during 1946 and 1947
had reflected the assumption that the irector of Central tntelli-
gence, as the one responsible meet have authority car ensurate with
that responsibility. The latent power contained in beiw. "executive
agent" of the RIA?.plusposse
n of an independent apparatus for
the collection, production, and dissemination of intelligence, could
be made to constitute such authority, but under circumstances that
might eventually subordinate all other intelligence to the central
agency. A failure to press for full power, on the other hand, might
result, in several independent intelligence agencies, none subordinate
to any of the others unless, of course, Vandenberg's whole position
were abandoned in favor of a fully cooperative central Intelligence group.
In ?a:r 1947, Admiral Roscoe H. Hillenkoetter, Vandenberg's
successor, abandoned one part of General Vandenberg's position when
he asked cancellation of the "executive agent order in the interest
of harmony with the Intelligence Advisory floard.1 This negative move,
however, did little to clarify the policies of the new administration.
It was an indication that the new Arector did not intend to proceed by
"authoritarian" methods--any more than, in point of fact, his prede-
cessor had done. But it could not be interpreted of itself to mean
that the new Arector was returning unequivocally to the idea of a
1 FAN. footnote 1, page 16, above.
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"cooperative interdepartmental
:roof of such intent as
tie would require either a seitement to that effect, or organisational
changes de,LTr0,7c1 for twit purpose. On becoming &tractor, however,
.emiral 111enkoetter neither prodneed a formal etatement regarding
the arectorts or the )neuple responsibility, nor made any important
change in the oranisation he had inherited. 2
It must be recognised, however, teat during the period uneer
diacusaion, there were special obstacles to the kind of decisions
thet would clarify the situation. illenkcetter became Urector on
Yay 1, 1947, at a time when the **timed Security Act was under die-
cussion and probable of adoption. ender such circumstances it would
have appeared unwise to attempt radical modifications in the structure
of f:;entral intelligence, any of which tgbt have to be scrapped when the
new law became effective. This was indieubtedly a factor in inhibiting im-
portant decisions during aillenkoetteris first three months in office.3
When the National .lacerity Act finally became law on July 26,
1947, it did surprisingly little to change the original i'residential
letter under which Central Intelligence had functioned for eighteen
months. The transfer of ultimate authority from the iA to the National
Security ouncil was little more than a change of nano from the Agencyle
1 See Annex A, pers. 1.
2 See Annex 13, below.
3 6e0, for example, meoranciim from
lsy 2, 1947, in "Alblications eview Su
26
to Admire]. Olsen,
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point of view. The principal dials
.gency were still there*
to provide Pdvice concerning the marehalling of intellience resources
for national seal to coreelete and evaluate intelligence relating
to the national security; and to provide servioes of common concern.1
he ct created a Central Intelligence Agency, but like iTesi-
dent Truman's letter2 in no way diminished the authority or activities
of any other intelligence agency. It did not give the Agency or its
arector special authority aver any of the "several 3overnment depart-
ments and /e7arnoies" concerned with intelligence, but only specified
the purpose of ,:lantral Intelligence as -coordinating the intelligence
activities" of these agencies. The law said that the "Agency" should
"correlate and evaluate intelligence relating to the national security,"
but did not say whether this was the duty of the "Agency" alone as a
separate entity, or whether the Agency was to act only as coordinator
of :7roup opinion. The Act provided that "the departments and other
agencies of the lgvernment shall continue to collect, evaluate, cor-
relate, and dipeeminate departmental intelligence" but did not spe-
cify the extent to which they should participate in this same effort
as it relPted to "national eeowritintelligence.
NC lnter?retJ3tion of the Law
The National security Act, then, while it gave Central
intelligence a firm foundation in law which it had previously lacked
See 'rum below, for Act of 1947.
2 See Annex A 41rezr ph 6, below.
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changed very little *lee.
in this case with the 40Pr.fil
;'ending Interpretations all
organisation of the gency war
ticelly assured the integrity
it had to.be interpreted.
the National Security ;euncil.
t decisions as to the internal
naturdip deferre. This fact prac-
andenber4 organisation
until January 13, 1948? which was which the National
Security Cincil tesued Intelligence Directive No. 3, the second of
the two "N7XIDIs" that 401104 bow Central Int iligence was to operate
under the new law.1
The principal points of interpretation turniehsd by NSCIE,
No. 1 ind Nscir No. 3 were the following
1, The Intolligence Advisory Committee wh ch had not been
mentioned in the ct itself was established as an essential element
in the lixectorts coordination function,
2. The 1rector was directed to produce "intelligence relatinz
to the national security" but to refrain, "in so far as practicable,"
from duplicating "the intelligence activities and research of the
various rtienta and tgeLcias." (By 1948, however, the Arectorts
office of roseerch was so obviously duplicating much of the work
done in other ac:encies that it might easily have be?n disestablished -
in accordance with a literal interpretation of this part of the
Directive. The Lireotor did nothing, however, to inhibit its growth
and it continued to develop alon the lines that had been laid out for it.)
1 The other was
had to do with coil
D-2, first issued Zee. 12, 19i.7. NSCILTA.2
on and is therefore not germane to this study.
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3. The Director's right of diesemination of nationa intel-
ligence we curtailed to the extent that -VA: iA2 must first offi-
cially concur in it or offer elijNegreed statement of substantial
dissent."
4. It was emphasised that thereghouid be a free inter.
change of information as between the Agency and the intelligence
organisation' controlled by the IAC. Uo means of assuring this
interchene, however, were provided,
5. The Arector's right to hire his own people in addition
to those supplied him by the LAB membersgencies wee confirmed.
:It was specified, however, that employees furnished by the Ageneies
should remain under their effective control.
6. Terms were defined and fields of special interest
delineated. "The whole field of intelligence production" was
divided into five parts, ranging from "basic intelligence," to
"national intelligence", and wee allocated as follows:
a. "Basic intelligence" was assigned to ,4ntral
Intelligence as general coordinator, editor, and pub-
lisher; the work or producing basic intelligence, how-
ever, being done by the other agencies.
b. "Current intelligence" wee not specifically
assigned, it being directed that '?:entral intelligence
and "each other agency" should produce its own. It was
not specified that current intelligence produced by CIA
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should be "nationals of any other se,cial pe; hence,
mold ed exell!ut from
current intelliende:
boin4 eubmitted for conehirence Wore dissemination.
c. "Stiff" and tidepartmental? intelligence were so
defined as to bo, to all intents an purposes, the sLie
thing: newel), what was required by an individual tepart
ment for its own individual uee? It was specifically
reco,mized that this type of iitelliuence was to be pre-
pared from the correlation aid interpretation of all
intelligence materials available " to an Agency; and
"that the staff intelliggios of each of the departments
must be broader in scope than any allocation of col
lection responsibility or reoegnition of dominant inter-
eat might indicate."
reason, any agency, in
producing staff or departmentel intelligence could call
upon the other A,;enciso or tail for information, in
addition to what it had At its own command.
d. The Arector of tr.l Intelligence, neverthe-
less, was to "seek the eniatance of the IAC intelligence
agencies in minimising the necessity for any agency to
develop intelligence in the fields outside its dominant
interests."
e. i-tegarding staff lutalligence it was specified
that IP and the IAC Agenoies should exchange information
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on production p1ns ap$ that "It
1 be normal practice*
to make staff intelligence masa* to all Concerned.'
f.-"National Intelligenme was defined as "lute-
epartmental intelligence that covers the broad
aspects of lational policy and national security, is of
concern to more than oft Department or Agency-, and
transcends the exclusive dempetemee of a single 'Tepart
ment or Agency or the Military latablishment." The
Director of Central Intelligence was to produce and dis-
seminate this type of intelligence in coordination with
and with appropriate assistance from his Agency col-
leagues.
g. Fields of "dominant interest" in intell ence
moduction were delineated, !ivin, for example, politi-
cal Intent ence to the State lepartment and naval intel-
ligence to the Department of the Navy.2
ects of e Interpretation
Thus, at the beginning of 1948, with two years of varied experience
behind it, what had been the Central Intelligence Group had become a
1 These clauses, however, were not to be fully honored in prac-
tice. Sees for example, memorandum from AD/ORE to DCI, Sept. 30,
19h9, "Coordination with /AC Agencies" in 0/DCI,61S files.
2 For fall texts of NSCIDIs I and 3 see Annex E, below.
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mognised legal entity with formal1r defined7-..1:-tionehipe respecting -
other intO1iL nc ,.:rganisatione,
scat of teering committee
part, the tomc,. had become a
at tnt roep had bun aa
Luger body of which it was a
element, apart from the others
of the orrer p, wix1ei 113G its own stated duties to perforate-as
distinct roc tc to be performed b3r the others--;%nd :Lts own bounda-
ries beyond wicn t not to trios.
th resect to thF five cate4ories of intellience to be pro-
duced tral Intel' genes wne concerned with three; bauic, current,
and national. i4garding the firet, the responsibilities of entral
Intelligence were supervisory; CTi!. wsmid coordinate, edit, and pub-
lish, but would not do the research for the national intelligence :sur-
veys. LemIrd ing the second, he responsibilities of Central Intent-
4enoe were somewhat indeterminate; the Arectives iced no hindrances
on CIA
his respect, but gave Cii. no exclusive duties. icnce, CIt
was at liberty to continue f)utlishing the current intelligence digests
that it had been distributing since l946 and to add other forms of
current intelligence if it chose, while the other tencie5 were equally
at liberty to continue produing their own current intellience.
The definition of "national intelligence could be misleading
for the purpose of distinguishing "national intelligenee" in fact.
eide fro: tn, elastic quality of the term national security"
in the phrase, 4covere the broad aspects of national policy and
national srcurity, there wau the added term "covers".? if this
word were to be taken in its usual ;ulnae of "to envelop", than
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everything prodaced um!er the heading of national entellieence
e
woule hal% to be eamPretenaveiSt 14414r
other hand, "cower" were to be taken in the sense of "related to,"
then almost elle intellieence subject of any importance weeld be
-eligible. -s "eational intelligence" was actually developed over
tee neat two years, the tendency was toward the letter interpreta.
tion. Tnia wee another reaeon for the "miscellaneousness" of
to qualify. if, on the
which the eulles Committee was later to complain.
Lee _erector was to "produce national intelligence, but he
W58 enjoined to seek the aid of others in producing it. it could
ask the ,eencies to contribute the material for national estimates
If he chose, or he could get part or all of the material from his
own organizetion. it he decided to produce "national intelligence"
without eeekin any material at all from the eee Agencies, there
was nothine in the eeCleis to forbid it.
The period of uneerteinty was now at an end. Legislation
had established the former Croup as an Agency, and placed it under
the hational eecurity Council. The law had been officially inter-
preted by the eecurity ;ouncil. The Agency coeld hire and pay its
own people. it was not made entirely independent of, but at the
same time it was not entirely dependent on, the other intelligence
agencies unoer the Security ',muscat so far as management and pro-
duction of intelligence were concerned. It was possible noble to
See Lulles eport, pp. 86-67.
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fit the 400 :_40.1C:i 1.-to whatever orgehizatioaal scheme eppeared
most appropriatt: 2Q1- cleat:Aare of its nwi def4ned raupoflai-
,
bility. But thc.r. wns rell,y nothing in the new law end :Arco-
t/yea that :jid not tznd to preserve what h *ca1lj 'u,co'Ae the
status ,flo. It would have been quite possible, in to reno-
vate the ,choy structure altog ther, tut there was nothina in the
new situaLion necessitated any encil,;L3 at all.
rev.lopent of the Hillenkoetter Olymi
on
rtttn'..aet organization chart* usually fall to f.hdicste
the true nature of a worin urgeniaatioz, thut o. January 1. 1949,
is inter ::51,1k; in shoeinq the Asin outlines of CIA as it had
1
developed crter arovtI u.f the basic directive*.
)(cluding the position of the National ourltj ounoil, at
the top, the Jhnuary 1941 chnrt was arranged on three level the
first th,lt of the :i.rector? u nich adars lath WA only the intel-
ligence .4ivisory :;ommitteel the second that cf advisory and adminis- -
trative roups, ahd the third that of thu 4producine ?Toups. The
advisory ,iroups were the Interdepartmental Coordinating and
lennini; 'Otaff, theeneral ?ounsol, end the Avisory .;cruncil. The
administrative offices were Asnagement, ,ereonnel, urd
Services under the fireotor's "71ecutive"; and Fmployeu Investigation,
1
.;Ere ,,nnox iJ? below.
34
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JnspOctiOns ,I.n;At, and &434,141ilif Brand 'Aander t;,c, '.14jef for :naps*.
ton curitr. T sarytn. on uctusl intellizenoe
business were; Colloction , *gemination; .,t2ientific Intelligeneej
aeports and ,4timategoi !;pecial -ations,olicj cordination, and
,)-perationa.
:110 ;;rominent position accorded-the Interdopartontal
,00rd nating a,1L 1anrtn t,a lo uti chart reflects the rirectorfs
decision to retain this organiSatica? even In the face of objections
on the part of sale of its 00 goobers.'
/8 to the remainder of ibt January 1949 chart, the principal
change probbJ was the appearance of Scientif 0 IntoIlionco as a
separate orrice. This ?bangs, like tbellnal establishment of
reference services in the Qffice of Oellection and jisseminntion,
repreeented an alteration for greater efficiency then could be
attained when all the/K activities were included under the Office
of oportn and -E;timates. Other changes from the 1947 charts (none
was published during 194E) are more apparent than real.
Coordination Problems
4..)anwhile, the two basic Inter-z.en' problems--ccorinotion
of activities and production of netional intellizenco?-resincd to
be solved. 'ost of tha actual corAnation problems were handled
1 Oee .!iter III, bclow, for explanation of thie d
I 35
SECRET
4,4
n.
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under the new arrangement?no by those seised of the
cs1 robleme hvolved. ICP fpiently complained of both
bYPeesed in these matters./
The other bogie problem between the agencies--that of
ishing the 6ecurity Council with sound intelligence estimates sat-
isfactory to all participants--also involved coordination, of
cf_mrsel but coordination of estimates was handled without refer-
ence to ICvZ. This.may not neve been-too surprising since it Wei
generally conceded that the whole estimates problew?inoluding
coordinstion-..beloeged to the Office of eports and Fetimates. it
the fact that the IntellieenseAdVisory Committee tended also not
to be involved in this prooste?as * more serious matter.
.iAther the Director (leeerding to the Vandenberg theory) or
the Director and his advisory pommittee would have to take
responsibility for national estimates rendered to the RSC. Whoever
did so would presumably heve also to approve them. Fut as esti-
matee began to be produced, the Director neither took an independ-
ent position with respect to them nor habitually sailed the Intel-
ligence Idvisory Ocennittee into consultation over them. The result
was that this important problem of final, responsible review and ?
approval Wh5 left very largely in the hands of the Director's sub-
ordinates and to the subordinates of his colleagues on the LAC.
1 See Chapter III below.
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The prIncipvl eubordiastO in the Lirector's case was his
Assistant Director for 4epoollo and arkWates. Put evea this
offiftel did not necessarily maks thCrables of personally approv-
ing estimates one of him chief preoccupations. Oenerelly speaking,
he preferred to leave it in the hands of his own subordinates. The
IAG intelligence chiefs, on their part, epi:ointed official repro-
sentvives to the jffice of *ports and astialates whose principal
duty would be to reresent their own departments in the matter of
contracting to national estimates. These representatives, how-
ever, instead of becoming active in the production of national
intelligence, remained in their hose Offices and undertook the
review of Cif, estimates!! only at the later stages when the estimate
was already in draft form.
in practice, therefore, much or the necessary discussion
that accompanied the process of actually producing estimrtive con-
clusions under the terms of HSCID-3 was carried on by regional
analysts in CIA with their counterpart. in other intel1i4ence
agencies, subject to review by official, senior to then in all
departments. 4hat these officials approved for final review did
not always include the views of the members or the LAC, but was
sometimes concluded In the name of the departmental representatives
just mentioned, and or the Assistant Arector for elports and
r!etimates for CTP.
Occasionally, during 1948 and even 1949, this was the full
extent vf the ccordinetion process before publication. Irafts of
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the publications had been *Tellable, Of &puree, to the !AC and to
the Director of eentral Intelligence, but in many instances their
silence was taken as consent, and estimates wPre published, not 50
much with their signed approval as merely without their disapproval.
Pt other ti,, the IAC chiefstheneolvee took a personal
interest in the cooreination prneedure. euch intereet was BOTA
tines occasioned because an unusually strong disagreement had
develop, oven though eometimes one of ae oseentially minor nature.
?4or'e imporLently, however, monbera of tee lie-, *Quid step in Whom
they reeoenized, in finni drafts aceeptable to ali subordinates whe
had worked on them, statements that they themselves did not believe
should be presented to the ?resident and the National security
,
eouncil as halving been endorsed by their departmenes.1
That each occasions should havu arisen Is by no means sur-
prising. Indeed, one of the chief premie on which central Intel-
ligeece had been foulded had been that there would be disagree-
ments over what constituted valid intelligence conclusions apeli-
cable to problems of foreign polioy.2 7:;'ut under the system al it
eeveloped by trial and error, between 1947 ane 19500 the reault
of interferenee by Lee chiefs of intelligence in the coordinaLion
process after it had reached its final Aevelopment at the
Examination of Oee s "coordination" files (in custody of
0/eel/He) relating to estimates published oetween 1946 and 1950,
bears out the above statements, p?, 33.39,
2 See NSCID-1, Para. 5a, for example, in Annex E, below.
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subdirectoral level was often to intro:.luce net, cnna:t.zein into a
situation that wa5 aircady *stabled. The bri?.43 of,this-!irTiceity
bee*** one of the main xints of the .13.1los Report--i?he Pailure of
tte Intelligenc.:e Advisory t:omi.ttee to involve itself directly in
Lho produc:tion of votiwatcost
The TE
Pr***
The situa Lizn was farther corn;41eLzted by the
Intal ikronca had establishe2 whet araounted tr.: an 11.4upero,-
rt-arch component existed aide b; IlLie with four
0.0parto (in 'tate, ,rry, vj, Ind Air) .11.1,-h 'acre i3e7a:t-
pent.n1 empowered tr wri,e oomprehensIvo t!stirate:i fo-
L1,3,-.3.7-1-,cpc,n' al purponf.e. The prIncipit cha-acteristica of the
iieof vrts nni 54matesa Ativ.Taguicd-qd fr,,rb the otho-s
to rid11 ..11r1 ?acts that Ps11 It ir1:3 eentrolly locc,ted;
it h1.4,,i boen accorded -...er.iponsIbilitv for drefting "national"
1nte11icence;2 (c) it wee deprived of operational" and "policil
rtzq" ,4.1.Ch 1,15 vortinent Latta 1.1oncei for,!it
Wes% vino ,*,.):)en.11.-tLt on the Tyr A.3eneie3 or t 117:t011I-
0,nc,, ixt lti e 't1m3t-.3 beaed. 7hus t)031-t1 WDS a
atelits*,!ir r1n44 wth 3:3041 ,o leadership in the production of
natioi int.el,inc6, ilut. weak-with respec: 1.0 th eetrt of doing so.
ve2,108tport, p. 81.
7:4;11-% 3,4 dated July 1, 19h8, Para. 3
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The Dulles 9.eport suleaarised the point exactly in 1949
when it tI that the Central intalligence Agency "cannot and does
not by itself have all. the specialised qualifications needed to
produce national inteLligonce2. . ." This feat was a central and
stubborn one in the controversy that culminated in the :vorgani-
satian of 1950-1951. Since Central Intelligence (or specifically
the Office of Reports and Estimates) did not have all the quali-
fications, it could not produce fully reliable estimates. Central
Intelligence could acquire all the qualifications olly through a
go rnmental reorganisation that would affect military and diplo-
matic oprations as well as intelligence. Whether or not such B
change wnuld be desirable, it would undoubtedly prove i ossible.
The only other answer lay in W1 "cooperation". But the
very existence of the Office sof Reports and Estimates tended to
make cooperation difficult. As a sort of fifth wheal, it had
unintentionally fostered the species of rivalry referred to fre-
quently in the '3ulles Report, which tended to bring the various
1 The Report of a Survey (}roup consisting of Messrs. Allen W.
Dulles, Mathias F. Correa, and William H. Jackson (appointed by
the NSC, Feb. 13, 1948) published Jan. 1, 1949. Se* Chapter II,
below, for further discussion of this Survey nroup.
2 P. 73,
3 In that 0-2, otiI, and the State Department Intel Ii pence System
were integral to their parent organisations.
For one of manyexamples,_ see "coordination" folder on ORE-
Feb. 9, 19118, in custody of C/DCl/BS.
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agencies and central Intealirinno in
competition rather than
cooperation. A competitor*OmXd net Upset cooperation. There
mould herdi be a disposition within the Agencies to aid in the
success of venture whose success might be fatal to themselves.
Furthermore, as the Office of !sorts end Estimates became
canal ed that it could not expect cooperation, it tended to pro-
ceed without soliciting it. Sometimes--though by no means always--
it produced its own first drafts with little 'reference to its con-.
temporaries, and then circulated them for concurrence or dissent."
The result was a complaint (registered'incldentally in the Dulles
aeport) that the Agencies were treated as outsiders rathc,r than
collaborators in the productien of national intelligence.1
The Dulles Coittelvaaeopmendations
and Their ReceptiOn.Wt the Agency
The Dulles Report, appearing as it did, midway in the ini-
tial period of CIA's develepleatjl9116-1951) clarified issues that
had tended to become obscure in the midst of developing contro-
versy. It emphasised the point that Central Intelligence had been
designed and constructed by law as a means of coordinating intel-
ligence. It pointed out that the Agency was actually in position
to do no more than this in any case. Hence, Central Intelligence
must return to the role of coordinator which, among other things,
1 For example, see Dulles
port, p. 72.
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entailed collective responsibility the part of the Intelligence
Advisory Committee. In accordance with this conclusion, the Dulles
Report ventured positive suggestioilb designed to bring about what
its authors considered to be "Central rntelligencen within the
meaning of the law and of practical circumstances. The essence of
the proposal was in three parts.
First, the function of coordinating intelligence activities
should be discharged by the Director, aided 1)-: his own staff, work-
ing with the Intelligence Advisory Committee. National intelligence
estimates should be directly coordinated by the IAC itself. Better
preparation of these documents would recinire revision of the Office
of Reports and Estimates,1 to the extent of having it form one small
group to he solely concerned with the preparation of national esti..
mates on a strictly cooperative basis; and another with research "of
common concern" which would supplement, but in no case duplicate, the
-work of the established agencies.2 Finally, a series of administra-
tive changes would be inaugurated, designed for greater efficiency in
the Agency's dischsrge of its statutory responsibilities.
These proposals, although they were not greeted with univer-
sal disapproval, did not find an entirely cordial reception within
the Central Intelligence Agency of 1949. If nothing else, they
See Dulles Report, p. 81.
2 This proposal was actually, of course, more in accordance with
the agreement that originally established ORE (NIA...5; see Annex c ?
below) than what had developed as a rssOlt of the Vandenberg
administration's interpretation of the agreement. See discussion
pp. lh-15, above.
I h2
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seemed premature, for when the 1- snifiepo t Val! 'submitted to the
national Security Council, Central Intelligence was almost exactly
three years old. As an Agency/ it was seventeen months old. In
the course of three years, spite of changes and controversies,
a great deal bad been accomplished, a fact which the Committee did
not necessarily deny, holding rather that the new system was being
missiewed. The defenders of the systemohnwever could point to
progress in promoting the objectives of unified intelligence effort
and production of sound national intelligence. 'Simultaneously, they
could emphasise the point that the state* had had a very short time
to develop and that to make radical changes in the midst of this
formative period would be to risk hard-won gains.
In simplified essence, however, the disagreement of the 1949-50
administration with what the Dullea0lemittee proposed, was centered
in the concept of divided responsibility. Although, as has been
noted, Admiral iallenkoetter had never echoed General Vandenbergla
demand for authority commensurate with the riractores mandate from
the President he had also never declared Unequivocally for group
(TAc) resxmeibiLity and -authority. During Hillenkoetterts two
years in office, however, the Agency had inclined toward the theory
that it must be independent in order that it could present the NSC
with. estimates uncolored by nepartmentel prejudice. In theory, at
1 See PrI's C
0/DCl/RS files.
nts on
les Report, dated Feb. r, 1949, in
43
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least, the sort of corporcM responsibility av orcv y the :lulles
? Ittee was inimical to this point ef view. ror tl-is reason,
t1-43 _erelr!ere of the 1949 status goo-in nentral Tntellience found
comfcrt in the twn excepticas talien to the rullee leport by the MSC
r % 1 -
in the `Zeport !mown as wx,r-,00): one ths
the
:irector not be bound Of the cenoept of collective reapon-
';'s other, tha reernization undertaken in eccordance
with the .)1alles ;cport neod aot ase.artly follow the exact means
r.opose_! by the Comittes.
implied rv.ection of collective reeponsibliity by the
tinn1,ocurity Council, In purticular, seeeed to give substance
to rcactien that had In any case greeted the pullee Report
within tho 7antrel Intelilence Agency. This reaction wa3 pri-
msrily that of the persona who had dee,.t at first hand over a period
of months or years with the practical problems eutviled in setting
up and operating the Agency. Whereas the Dulles Comrrittee thought
of 7entral prtmarily as a means throuqh which all
governmental Intelligence eould be brought to bear, in s coordi-
nated form, on natienal problIsse, many key 7IA officials of the time
thought of the central Intelligence Agency aa the principal instru-
ment, under the National Security Council., for the production of
I .7ometimes known as the "McNitrnoy eport" adopted by the NLC
on July 7, 1949, accepting the Niles Report with few reservations.
1411
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national intelligence. They believed that the other geonciell 0110
Ci all necessary *cooperation" toward this purpose. They welled
that the :Lntelligence reirectives of the :ietional 5ecurity ClurncU
had been framed with this end in view, but that to 'early loopheleS
had bAsn left in the Directives, and thet the ',.:ecics hid deliber-
ately evaded their responsibilities under them.1
Accepting the promises on which this tA-4 of
based, however, the word "cooperation : h;ive been considered
ill choeen. Another word would have been ohdlionee." In order
for Central intelligence to moot compliance, it would have to be
given much greater powers than it posillosod. r move in the direction
1 Thus, in a memorahdum to the Urector of entral intelligence
on the subject of "IAd Cooperation with CIA", dated Sept. 30, 1949,
the Assistent Ureator for Reports and'hAtimetee wrote:
"The meet spectacular evidence of the lick of depart-
mental cooperation with CIA is represented by
These are cited as such evidence on the around!, that:
a, as a result of the **ordination of these direc-
tives with the lAc: agencies prior to NC action they
represent only those concessions to CTA that the In
agencies were willing to make, and consequently, do not
provide the Ureotor of eentral Intelligence with the
authority required by hie to discharge the reeponsi-
bilitiea imposed upon hin.
b. by In insistence they contain all manner of
escahe clauses which vitiate Departmental responsi-
bilities to CIA", and thereby hamper the objectives of
the Uational Security Act of 1947 toward a fully coor-
dinated US intellieence effort."
See tab to ieno (5) in OACl/MS files.
45
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ef obtaining such powers 1r teOUld UV*been a bold one. It
woad hove amounted to a flat at the Dallies Report and
a direct challenge to all critics
Yet sone move on this order Arens almost the O!i.t 1O4O.1
conclusion from the position being taken by the Agency in 1949 and
1950. The Aviator favored a *strong central agency." illS
Assistant eater for Heports 41t4 Imam; was aleinst any system
which presupposed collective responsibility. The
irector's :Ioneral
Counsel interpreted the intent of Congress At favoring a fully respon
sible Llrectorate. The Chief of the _Lnterdeps %mental 'oordinating
and nanning Staff (or Coordinating, Operating, and Planning toff)
inclined toward the same general position.
Tet no direct representations teTthis effect were aad o to the
National Security Council by the Hillenkoetter administration. For
most of a year, from the fall of 1949 to the fal of 1950, the
questions raised by the Dulles Report were debated, primer ly
between the Arootor and a group within the state Department which
had proposed its awn plan for ,entral intelligence under collective
responsibility. The Agency's proposed reply to this proposal was
in the nature of a counterplan which ,went sone dirtance in the
direction of centralised responsibility. Neither proposal, however,
reached the point of gaining official approVal.2
1 For correspondence underlying these s
NSCID0.1* in files. of CIA Oeneral Counsel,
2 Ibid. 5ea also chapter ti, below.
146
omits see folder
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Measehile Admiral Hillenko
reported to the 6eau
ty
ogneass Ootober 7, 1949, that (in accordance with the Council's
nisi endorsement of the Dulles 4apart) certain reorganisations
were takin
in the Agensy, ealarly as affecting ICAS
and the Office of ,-eports and get mates. These reorganisations,
however, took advante of the NBC's concession that there mi,ht
be "other met ode than those cag;ested in the Valles eport of
accomplish the same objectives.
token than real.
The lack of any real response to the in es Report or to
N30-50 is exemplified in the schematic representation of CIA
organisation published July 1, 1950, which is substantially the
SAmitt as that brought out in January 1949. The office of "Lkeou-
tive now took a place between the irector and the Agency's
organisation, but it is evident that the esutivele duties were
mainly concerned with "administration", whose organisation was
soNewhat more complex than Ware bat comprieed the same enerel
functions. On the advisory side of the chart he medical staff
had been a dded, and the name of the Interdepartmental Coordinating
and Planning ttarf (ICAPS) had been changed to -Coordination Opera-
tions and Policy Staff (COAi,S), The latter represented an attempt
at reorganisation as well as a name change, but the principle
under which ICA WS had attempted to perform its !Unctions had been
ted
utp they were more
I 47
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etained, and the revision of iti chart
of negli4ble effect.'
The six "inte1lienc&" ?Moen Vegan intact with some
interml changes as indicated in the *Art. Aside from the appear-
ance of ten divisions under the Office of Scientific Intelligence
which had not been indicated before, the principal revisions seemed
to be in the Office of eports and 6stimates, which contained
seventeen sub-divisions as against ten in the previous chart. This
does not, however, reflect an actual
wth in the number of divisions
but an attempt in the opposite direction. The only significant
change, in fact, is represented in the addition of an Estimates
Production Board" (vice an "Intelligence 'roduction Board" which
had appeared on the January 1949 chart) which represented a partial
answer to the Wiles eport's auggeatien for a "small estimating
group," in that a board of ivision ..:Idefs was to review all esti-
mates produced by the Office. Actually, however, the Doard did not
function in this capacity, and the Office continued to produce various
forme of written intellisence almost exactly as it had done before.2
In short, the period 19148-1951 in Central Intelligence did
not become one of change as might have been indicated, but rather
of uncertain retention of the status quo. ,7onsequently? the
1 See Annex B, below, for Chart of July 1, 1950.
2 c,
oee folder on ORE "Eatimates Production Board,"
files.
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organisation that General Smith inherited in 1950, though larger
and more complex, was little different in general composition and
operating principles from that which Adliral lillenhoetter had
inherited from ,.leneral Vandenberg in 1947.
Of al 1 the
developed at the end of Own
n the Agency orgenixation as
term in office (1953), the
most prominent is the grouping of 4gencr activities under three
main divisionsi lana, Administration, and Intelligence?
The first of these is not of concern to this stud,. 4t
might be said, however, that the move toward covartmenting clan-
destine from other CIA activities was not a new departure. The
Office of Volicy oordination had, fro its beginning In the fall
of 1948, been managed separately from the rest of Central Intelli
3 -
ono.. A.milarly? the ,Ifiee of Special 4mrations, though soon-
ingly daring 1946-50 an activity parallel with the non-clandestine
office., was In fact nearky as completely separated from then as
was
OPG. The conduct of the Office of Operations On the other
1 S? Anntx 3, below.
See footnote, p. 1, above.
3 See ;lietery of OPC inoirtx/iii
14See, for examae? Chapter VI, below.
I 49
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hand (with certain exeeptionsarisingout of the nature or-iflie
Contact Division) exactly foreshadowed during 19/46-50 its ultimate
relationship to the D 1T)
The groqping administrative ly;Nrepeect_ 4es-under
a single authority (DDA) was likewise not a new departure. Begin-
ning with the CIC organisation chart of Jule 19V, where provision
had been made for administrative support emder an "executive Office,"
and ccetinuing through November 1950, where almost all offices con-
cerned with adhinistration and support were under an "Executive,"
there was always a tendency in Agony organisation to provide central
management for activities of this type.2
The remaining chapters of the present study aphasia: those
corponents which came to be known during the period under consider-
ation as the *DD/I complex." This grouping of pavdection and
related non-clandestine activities is manifestly the heart of
Centel Intelligence when conceived as the moans through which the
whole intelligence machinery of the United States Government can
be nada to produce 'intelligence related to the national security."
istorically speaking, the "DEVI complex" is the method adopted
under the Smith administration for doing mbet previous administrations
1
See Chapter IV, below.
2 During a part of the flil]sosttr administration, these
activities were also subdivided in accordance with the clandestine
and non-clandestine nature of the support. See July 1950 chart,
in Annex B, toloww,
I50
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had attempted to do through the medium of the office of Reports
and Netimates and the Interdepartmental Coordinating and Planning
Staff. Although the office of DOA was not established until
3352, it was, in nany respects, a normal development fror4
pone be fore.
r;tral Vandenberg'splans of 19/47, as 1-las been seen,
involved a large and self-contained "Office of aparts and t:sti-
mates" that could do research in all geographical and
fields of intelli COMO including economics and science. ;t1ong
with that office, he sought to have a means of acquiring all intel-
ligene: needed from the moat appropriate government sources, and
a means of codifying and storing information so acquired. Ttria
office already had, in '19147, an official mandate wader which it
produced current intelligence for the President.2 In point of
fact, either tentatively or permanently, the Office of Reports and
Estimates during 1.9147-148 had within its structure what were to
hector the office of Current Intelligence, the Office of National
Estimates, the Office of Research and Reports, the Office of
Scientific Intelligence, and the Office of Collection and Dia
semination, together with Basic Intelligence (the National Intel-
ligel 'artery); Map Intelligence; what eight be called "crisis
above, pp
-2 in Annex C
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intelliesInee? te. Caitta. SW Se 1 ;ndieetiona);
Driefin4e); and elements
of a spedial intelligence center. Assistant 171rectur for
-ieporte an0 -sltimates, in other words, was to comprehend under his
superinLadence ail that was later ender the tputy reOr
(Intelligence) except fur coord1a4ion of intellln a ivities,
end overt intelligence ?enaction.
By 1949 the plan for Oiti had bcca e less elaborate because
of the transfer of its referees* feallitiJs to oC0 in Adril 194e,
and of aciontific intelligence (to ? separate fide) in ,)cember.
in spite of these shifts, however, xis was still a coplicated and
comprenenelve office stollen been pointed :Alt above. It. still, for
example, produced "national intelligence of all type basic,
current and "staff") laroly through its Own research facilities;
"coordinated this intelligence where indicated; was s producer of
specialized economic intelligence; and performed a great variety
of related function's.
iiaring 1950-53, the office of Reports a .!4timates was
dismembered into three parts (Cerrent Intelligence, National
int11igances and search and aseports) while the rATiodes of
and oral ieUience (ituation
The ",7eneral riViSi011e. See Chapter V1, below,
2 Parts of the Office of Operations were also briefly included
under ORZ at one time. 5es Chapter 1V, below.
3 See Chapters V and II, below.
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c!ctficIntcll emce r.nd of cOilccttcn end 1ur'irat1on wore
ve revolt/int 0 plus
to e
and of Ope tiona were trou,ht together umer a single head, yhooe
position thus resembled thet of the Aseistent rirector for eporte
ene stimetes (es platn,d in 1947) with two additional responsi-
bilities probably not contempleted under the 1947 plan.
The ensuing chapters of the present study will consider,
fireto the various roves that brought aboutthe tri-partite organi-
zation of 1553' then the die Mon made of the "coordination of
intellivece ctivities" (iCC'S) problem by the 8mith tdministrationj
then the Oev lopments that occurred in connection with the three
offices whelp' cortinuitY was no% ultimately affeoted by the 1950-53
reorgeniletion (CCD, OC, and OSI); and finally the development
of the three new offices (OCT, OR!'.., and On) that more created in
1950-51 outof . These discussions of whet may be ooneietered
the "Central - telligenoe fenctiona of CT! will be followed by a
chapter concerned with the (nen-clandestine) administrative offices
whose :..Ttlery Punction is to serve the 'entral Intelligence Agency.
pormitted to rein intact.
tnt of :ntelligenoe Atordise
????????11111.1110.111.11160.1.111.11011.01101W
1 It should be noted, however, pee Chapter below) that
OIC as organised by 1953, was one sting under e different concept
from that of TCA,S, it being understood ttelt moot practical matters
of coordination would be t function of the various Atlas the trjoic
lendin4 his aid where needed. Also (see Chapter IV, below) the
placement of under the 7.D/I was based more on expediency than
inescapable se.propriatenees.
53
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ccrTIFT
CHAPTER II
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ornANIZi NAL 1ttSTT OF CrNTRAL
011apter I
N II 1950-1953
/0 1950-1953
Contents
age
Orranisational Change vs, Organisational nobility 1
Sovernment's Organisation far Intelligence in 1950 4
CIA's Responsibilities in the intelligence Organisation,
as of 1950 7
Status of Inter-Agency Coordination and Leadership, 1950 11
CIA's Internal Organisation as of October 1950 17
Proposals and Ideas for Reorganisation. October 1950 24
Influince of Dulles Survey Group after Oetober 1950 28
?Ion for a "National Intelligens* Oroup," October 1950 18
Expansion of the Director's Immediate Orate, 1950.1952 45
P,ovival of the Intelligence Advisory Cow/Atte*, 1950-1953 60
Other Mechanisms for Inter-Agensy Cooperation* 1950-1953 66
Coordination Overseas, 1950-1953 78
Reorganization of "National Intelligence" Production
Syete 1950-1951 85
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rliapter TT
.1.1.91.14,53
-1-11rit".07,tetrol1 frie-irt% urAer the Direct-,
air;
,,3-ener.4.1 ?11Hitr ?::sti th, was vumaari zed br r8drt rum ar
as the fievelcrent f "sr efficient r4 pemm-lint arn the
Cicvernmert's ratinnal sev;rity structure.'1 gr,7 ?residert,"
runr,- -bre . A 1r c-,-manding Ulmer& 'mith f-Ar his part in
,he Arecnclifert, "ever hAd rnch a umi tht vital int-,r,Aktihn
Tale availahle tMm in such a tree manner as I iave rt.ceived
thrcugh
7c7eral inferral rehrganIzatisne fimIred urcmirently in
devolcnner 4 ,Inder General 'faith, in the c,nrse ef which ,,ATIAsh-
ingt111 hcaifylerterr changed free pe 17 c'fi nes find staffff, as 'tf
10511? t Pl fetch frelcr omsponent- by lf)S3. In add4t1cro tro
were less ccrxrien-hs rganiseticrial ehangem hcth in ?-cadtrarters
.acd the f1.1,1? f -ai-r sicrifisonce ir thls chrnecti,r was new
leadership, inci;ling (besides the rryw r,ireetlr himself) t;e1 Deputy
Dirsetcr, kree rOditicnal ).put Utrewetrls (established ae new
crumer tc undeted, wt .d by !.."mith in his farewell letter
tn all personrel, e February 1'15) (restricted); in
TMunnuhhcred re.uls ticrs'" file, in recc-rde cf Manageftert
in ems t-,-,4r -)f CIA itec-7,rde C.enter.
21MA.
,SitraTIT
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positions Iv 1 :emith)4 and the hesOs of merly of the operating
offices in headquarters and the Chiefs of 7:env of the miseions and
station in the field. There were also juritOietional roalimments
among 7?1::'s operating units, which did not neceseerily chanee their
nelos oe ee.2pnizetional poeitione. j111 other changes took the
rorm reellecrlons of budgetary assets or of specielizod personnel
along oderetine units, Gri revisions in the cleesificetion and
descriptlen of some of the secoitlized oate,eories of intelligence
personnel thet made ue the Agency's professional corps. There were
also nuetroue chenees in oper:iting programs, projects, end priorities
which rerlectee: the chaneing international situation, the progress
of the eereen .ar, and the development of the "cold war" with
oviest power doe.
or were organizational chanes a urel internal eattor
of oromotine meneeeeent end operating Officienciee within a erowing
headquartere and field estelishment. if not most el: the
chanees? had external ralificetions as well, sed involved attempts
to clarify n!Tti t-rove orgenizationnl position, its functional
.uriediction, 4nd its workint; relntienships among the other depart-
eents, r-encies, ilmj echelons thet ee0e up the eaverneent's national
security stru(7ture. In particuler, there were organizetional adjuet-
eents betwc.en anc the intelligence echelons in the '1.42te And
Defense Y;eport:Aents whtoh historically had controlled a major pert
of the .:Cverneent's foreign intelligence enter2rise.
there were clerifientions in ;i1,181 position with respect to the
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oolicy rlid operational ,Annnint; echelonn or those Zepartm ts
of the :ietical ,e'surit;" .:ourv:11.
1.theru h Anti-rnal reorliniestimms and external cri;rJnizt,tion:.1
ad.;untments ..Mra2terised much of..;1-"s rowtel Letwten 1/>0 klnf
t-As was orgahisetionnl stability Lnd
in eert4.11n 13ajor rEs)ects. Athin :;IA, for example, wLile Auch of
its Ni,1_1rtcr tstablishment was under 7oiny.; reornis-tion, num-
of i?k-.jor covonents r,Nvined essentially onAsturbed, gt least
o- the etnez,-Is or47nnisation chart. :xternally, too, there were
anificent :',Lements or stability z4ld continuivy, espeeizal;y in
the treat; or,sniar,tional framework of the overnment's nation:11
securt%. L LL!tur,.f. For exam?10, the name .osident under whom kll
of eliler4a predecessors tvld served, romaiNed in office
t-xouhout .enerel term 2irector.1 :lthough
is 5t.i!' to ?Iv.ve 7.zd 7lore frequent persowl contacts then
1,
olith's departure from 117. at the end of ''reSident Truman's
term was e:Tarently without ;:olitical ;1nificence. There
had iconlics',Leculation? n enriy es 1550, that :,,qith
would not stay in indefinitely, Lec;'1use of his health.
12, ';nith exres3eU the hoe to the staff
that ". . . wt1 the Director himself at undouLtedly Le
a nnn wild the -.:ef 1.xecutive is willing to scce)t, snd to
whom he Will jA011 a certain messurc of confidence, it IN
unlikely that you will ever hnve u Ldrector whose c,tatus
will chiane with changes in the ,citsinistration." 4,mars at
71;la :3,7enoy ,:rientation onference, cv. 21, 1i52 (ecret),
re-printed in OMi'AILetin No. 1, Feb. 11, 1953 (cerst);
in mIcores of !,r1a4ement ?taff, in custody of 011 .ficords
enter.
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i)roct4-x tne;,rt.tsiden. 2er3ow1 ttntton
to called /11e intelli4en e service,2
WAS
probsay nut funciwacntzaly diffcsrent under the two Arectors.
t;Ice uzis no bastek..7ume? In 7?onaml -L.thts. time, in
t$ statutory ralationshl.?) to the National. :tourity Under
ith,continuec; to f4roish the IVIs
support; the ::11-e..otor cutinued to eit a membcr Qrt and
rezkx.2 aii7tanistrativt,14' roNeibi by law, tc tit4t boOy43
Jovernment s :;rganization for Intellige ce In 10
for was thorb any fundasental ehange in the or,enitational
frtAcw:.rii, under rch tnti :cJvernesentla foreign intelli,Jfnce :)roiirvAs
end vt t a w;ole were conducteO.. reeo intellience functions
re.lained ;:ivide6 and ti?cntLalized among sever i,utononous
.cur, xccutive Scretnr:,. of the Netlonta :ocurity
4.i'ran3ed "et once" for '7.enera1 CAith, after he became
in '-,ctober 19507 to have a weAly ,onferenoc with ;r6-rident
TrulinL, thus "deliberateay ?a5sing by the Council and the
o the Lepartments to the Adte ouse." !.ce
Alterview with :iouers, Aule 30, 19.2, 2. 23, in
Piles.
2
:Uif interview with Al:en oetter, t. 24, 15'52,
in IID-11:-.; Moss.
31n ad,ition, ,rovideO certain acjministretive services to
the 4lona1 rvourit) ;ouncil. For sx71:,1e? the 4trollerfs
ffie re:,ularly sallisted tho NSC :Aaff in preparin the N-;le
tuci4et End pres,ntln 4410 follom?; 5_ts ,,ourse tl'roujh
the ,uci..-et Furce.0 t,ne enate "Inc! ouse Ipproprlatione
4ommitt(es. ee I ecret), t7uly 1, 1950
nnd ,iPnuary editions; :Ind O omptroller'e
w1ator4,cal ot . . . in 15;45-1952 (Top i,ecret, T74650),
in I /:; files.
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Z6ZIRCies P;1[ ,rletice the activitica or VI-lents al,:ncies were
coor,j1ntte0, uri riety of inter-aKency committee nd Ileison
arrshe1ents2 in w'lich trticipated in !,reltfr or leer de,-;ree,
f thcsi- seven t:tyncioe2 frou-ntly wlled
lnLzfli ence comaunity" in it pr1ee, four compriscO the ion;
ostablished oomponemta of the :rmy,-:,0avy2 knd :tete
:,(vartments (now joined the Air Force). Tn addition thre wnu
the ,:oint Int441
4enco ,:ommittee of the ,!oint Thies of Lterf2
ttether with certain other jointly oersted intelligence facilities
in the ;:efense :epartment2 nottbly thermed rorces ecurity 14:ency.
th.cre WPS the ttomic'inergy CommisAon whicl-, had had its own
thtellience dlilsion, since the end of 'for-1:! War I. The atv,.inth
nencY, cf rrse, we2 itself, lees than rive ears olo, with
a euLstntiP1 hadr:itrters in 4e0linzteel 44 nhlr.,:ar of overt .f:1?,16
offL:es withih thc ntted!Astet2 and v(4-rious overt covert
mIssions Pni stA.ons arod, the letter T.o-stly under .the "cover"
of :Ante or :'.efehec2rtIlent installations..
r.ition to tt:one seven princil or1i ich
the Gcverwnert/s fchAn intellizencc zIctivitits were delltra1ized2
there were ruln(:roJsortic tn organi7atiohs, on wtdoh the intern-
ence n-encios deended for ?arthultifty,-,cs of assi Vince.
1 ight cnies, if the Feder[a LUreem of Investiaation is
included. he 7T:17 hPd had certain foreign intelligence re-
spcnsiillttes, for ex44A1e in Latin ;,merica durirg ;Ind after
or1dkl.r 112 tut as of 1.50 its intelligence resiArmiLilities
were esNrhtpily limited to domestic matters. Axce IA9 the
rlreetor of ti F1 had ben a member of the inttali;ence
d'irisory L:omlittee.
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(..)71e of theme were part of the '7olirromenYe 6C'=*t 7truttares
auCh as the 7.deral. Turtu ofitivitatigation, wY,Ach ilod a dirQct
reltionshi to the seven foreigkintellience enciee throuh
its meraberehi on the 7ntelligence rdvisory
pertici2ating were certain other itenclk-3s wffich, hid
doneutic accur,ty rt7rponsibilities; anid ntaltrous "non-dcfense"
=:pch as, for exampleuthe Interior and 41!ricu1tura'Japert-
lents, whtch were contributing parttoulr chaters to the National
l'Urvey; and the Library or 7on7reas nnd the ith-
acnian Trititution? which served: as c?;annela for collectir nnd
flciexin.7. certain types of fore1:I1 7ublications of inteillicnce
interest. Thre were lenny lovern1Pnt agencies which hed particular
types cf resenroh, administrative, or'technicel skills end resources
to ccntribute to ?articular intellijence ':)rojects.
!y)le 15 ron-intfali7ence agencies were eorkir7 on economic intelli-
gence, as of 1950-51; end sOla 25 OgenaeS, in sci*mtific and tech-
2 ,
nolcd.cvl other participating grous were
located administrvoly outside the lovernnlent. 7.0r
there werc the wr-rious ?Jrivatt research o7ronizetions with which
1 '1A/n7i survey of the Iovernment's ecenomic intcllience
.rograme and activitiea, about May 1951; issued As ?)-1)..22
co filed filed in 0/D:I/, under headin: ":;1C-D".
2:re')hic organisational chart and proceurn1 flow chart, no
date, entitled "5cientific and Technicn1 :nformation and
7ntelli7ence" (ecret)0 in 0/N;I/a, filed under
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the intelligstaca agencies had "external research" or other con-
tractual projects, and the numerous panels of technical consultants
retained for dvice partictlar sulajoets. virseRs, there were
certain espionage networks in foreign c untries which were control ed
or monitorel by ?merican intelligence; the in4 l'igence orgeni;ations
of friendly or neutral governments with whicl- the United 't,rotes
had a variety of liaison arrangements end work in: and
the several interallied organisations, notably the North Atlantic
reaty Organization (NATO), in turope, and the United Nations om-
in Korea, with which the United 1;,tates was collaborating.
.-jAve rt eaponethi1itjes in the Intelligence Organization as4r,f'9 0
IA's functional responsibilities in this decentralized intel-
ligence enterprise, as it was organised in 1950, were to be found
outlined in the organic act of July 1947, which made CIA a stPtutory
agency under the 3ationa1. :;ecurity Council, and in a series of
directives issued by the N C between rtcember 190 and 1July 1950.
The effect of the National Security Act and the NSC directives, as
has been pointed out, was to establish a new intelligence agency
withont essentiall7 ,listurbing any of those already in existence.'
Thirst each a -ency had its own collectinn, interrogation, and
informati
therinT ap nratus; and each had its own research and
productio oprana for preparing any finished intelligence thgt
was nf:eded support its own pie:lithe and operational echelons.
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By implicetelon, too, although the direotiees were rot teelieit ie
detail, each agerloy nad its sms fecilities and s,yatcms for Incx1niS,
analyeine? !tfl C nte11jenc. information.
el= had its own arraneeeents for oeteinine extern-el reseurce erd
()tiler c=side assistance rron the non-intelli,ence eeeecles.
ach
aehey, feem14, had. it own administrative and tech!Ava services,
such as buth?elz!ry resources and contrail,
?
menpower procurement and
intereel security controls, and other "housekeeeine"
;,ne 7,nternal-eansgeeent services for focilitating ent aueeertine
its "mestertive" intelligence programs.
Lest the result of this manifest duplication be an unduly
coepartmented systeN such as had hed a pert in bringing etout the
:earl Harbor disaster tr 1941, all a:encies were exhorted to exchsnee
infer:lotion, finiehed Intelligence, acid collection and eroduetion
plans. Lest there be unessential intellieence collection end pro-
duction in particular fields, some attempt was made UJ clarify the
part to be elayed in those activities by each eeency.
? m.ramoorm........rome.00.0.10
1.
Gne exception was thi4t, under We.rle No. E, :lay 19146, a
overnment-wide service for biograehic indexing, in he one
field of foreign scientists had been essiened to ? eithin
-,e this responsibility wets beine handled, in 1950, by one
branch of ioereiphie Aeeister Division, workin in
cooperation with the Office of F:cientific Intellieence. The
services of :e.els other registers and of its central library
were also in extensively used by the other intellieence
aeencies in 1950; but ':;It had no specifically aesiened re-
sponsibility from the NSC for promotine ieeroved erocederes
for indexing and oreanteing intellieence information nor for
these reference activities.
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:-
Thus, collection 4civIties ilkre dividt,o thc seven
)rt17 or a subj?eot twus - ouurce basin.
,
Overt collection abroad remained dohinentl in the and; ef ;he
tate Lkpartmcnt's Foraign Service ate r:nd in thmtMfF,nso Depart-'
TaLlat's Military, n3VP1 and:eW attaoh4 and other fld tnteUi
genceu. State was ocp,,,cted'te toilect
cultural, .,t4:A sociolos;,icl" inforrwtion, ne fqnse wa C collect
r-1.11a "Iilitary, nnval, and -Air" informrktion, the eireotives
Qid not 6efine these Subject*, ' conclAic, cir,jnj,Lthd tochno-.
loqical" Lnformation, on the other hane? wns to 1,A9 ,athereS by "each
cency . . . according to its needs"; but r,.,,4_trd1eus of44Ljeet,
there WE to be * "free and unrestricted interdepnrtriental exchange
of intellienoe information to meet reeve-mils sk,condvry muds of
eedh Ccpartment and nency." No a?jincy wns ere,Tir.1: restricted,
in the dire,Aives, from irociirin,,!, uncleraifid foreign dLZIlicntions
ancl othcr
so-caled "opon literature" for its own o;:t-, :atnou,:h the
Ltzte did maintLin a ,roup of s'ublication rocurement
Jfficers :3's), at soma of its overseas posts, as P common sorvice
to the .,k)vcrnment generally.
*Aher t:;;:es of deflection activities vire orgenizQn on n
:source basis rather ti-lan by subect. Certain types of overt sourcos?
for exale ht.en excluaively aE',signef, to IA, AF "dervice
of ,-Janmon condom", Including the ;'ol1owin7, as or ';Ltober 1950:
foreirn ,ndo fltj news broadcasts)
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Another c.;.t; of overt sources,' especially .LL;nificn-r,
,7,inde the outbreak vf the Koreast'sonflit in June1?)."3, wee the
"cW,uree 6ourcee" field. Mese seurces, includin ;:,risoners of
iAured.weapons Ln6 supplies, ,,nd c'atured documentr, were
COntral 'cy the efense ;.opartment, but were nut c;:ecifically
doverd ih the ?-C oirectivoi.
'..;overt collection, on the other hnd, wee on exclusive re-
tionsilAlity of CIA, with exceptions. Certain counter-intellience
activities o the Army, the 4avy, and the ;ir ,Force, toether with
other se-celled "a7ecid activities" (not listed in the dircctiver),
wch werzi 14 the military di::KIrtlents as necesvary for
thGir opernional security, remained uniturtve in the A3fense
I)epartaent. The collocLion of special intcllit;ence, finally,
was ori,ed rr!cordin4 to still nnother -patern, al h service of
coAmon concern, in c.Cfect, that wns manno,ed not by but by the
1:tfense 1.:,.oartment; it WA3 controlled ty a acparato board ropre-
tintiri allP t:;nci.es concerned incluJin C::A, 8.nd respnsible to
the Netional ;ecurity
surisCiction over the production of -,ntellience
had ten divieed acr thc several intelligence agencies. Thus,
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the State r.apartment 'rv,O rtAfpons?Ulity Dro7 An* in %Allit cal,?
Cultural, and socio1o:i.f!al"Antellience4 .sne, t-fie :kfednse Alpert-
ment far. "s:ailitry, naval, :,nd air" intellince. The fields of
*con, scientific, eln?technolli(n1" Intelligenca produldn,
however., ht nr.:;cnete.business, dnding. on rql ances ?
inJividual needs. 11 tne
topical fields remained tc bz defined
aild divided further, after 1950. C1A4 an has been said, had exclusive
ms;onsibility for lupervisln, the cooperative production of two
kinds or "nitional" or supra-departmental intelIigence--natiowl
inttlligence estim:,tes which dealt comprehensively with
the capatilities an intentiontvof foreign powers and power blocs;
nnd nAtional intelligence surveys (W00), which contained ency-
olodic area information on indiviJuai 'orein countries. A third
Icind of nation!J intelli.;ence--national "in6ications" of threatened
hostilities?was not, however, aptcirically agaloc.id to 7,1A, nor
had it Jet bo n listed er defintd, in the rl.rectives which were in
effect In October 160.
:,tatus of oorintjonftfld Lcader'ahj*1950
In 0.-dition to its specific production and collection
responsibilities, ;It had broad statutory responnitilit;), which re-
mained unchnned ,rom 1>50 to 1953, for "coordinating the intelli-
gence activities of the several Oovernment doartments and a ,encies,"
by means of advice and recommend tions to the Naticnal Security
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..oundil, plus the rivbt to make "vurveys end inspectional of the
intelligence fieneLcs. In actual practice in 1950, however, CIA/e
inter-agency c,:or,Ination realpemeibilities wt:rc b,in conducted,
not unilaterally, but as an interdepartmental affair; and in some
fields th(:., job of coordination was in the hands of other a,Tncise
entirely. The rteverel "4.5=1" and ,s:JCIIm requlatory documf:nts, for
example, had all been developed jointly by aA and the other ancies
involved, chiefly through the mark of its Interdepartmental Coor-
dinating and >lanning Staff, a "'cup made up essentially of men an
te e
mdorary duty from the sveral tie;.;artmental /1
intellience ,7enclem.1
;s to surveya and inspecLions of outside L11110,014 it is doubtful
whether had conducted any of them before or Ourinl 3..5'04, None,
et least, were mentioned in records scan ir the course of this
stud:y. For the work of actually promotini; inter-a,tency cdordination
?/(J cooperation, was utilisik; a number of iter-aency cum-
mittaes, usually under the Chairmanship of CI, officials, together
with a variety of "workin= level" liaison relationships ,:mfong the
ai2;enciea.
The ,)rincipal inter-agency committee under a!' 1,4idership
in 1950 was the Intelligence tdvisory Amemittes (1[C), made up of
16ee MA;Aer 11I, below.
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the departmental inti
* Obiefn the 4nd preaidsd over
the :arector of Central Intelligenoe. The
howeveri, *lot
only four times during the last six months rch,,6eptelter }050)2
before General Smith came en duty; and it was commonly criticised,
within C1., a being less interested ip advising the rci on inter-
agency problems than in acting as a governing board over ? Never-
thelenes given a decentralised intelligence organis*tQn of new:re'
eesentielly autonomous agencies, such a council of ti. ntelligence
chiefs seemed a minimum framework through which the irector could
carry out his responsibilities for "coordination-. Under the IA:
were. e "Stan&
,Olsmitte0"03 and euboommittees (as of :ctober 1950)
in atomic energy Itelligencel scientific intelligence jenerally;
and the 4ational
There was as yet no committee for
enc. Surv
0'
1The officials who were attending the IAC as of november 1y50
were as follows:
:ark Armstrong, Jr., 5tate (opeciel Aseistent for
Intelligence)
'fisel. Gen. I. :t. nailing, Army (Issistant Chief of Staff, G-2)
:Muir iai. Felix L. Johnson, Navy (LA:rector of naval Intelligence)
Aaj. 4:ar1es Cstell, Air Force (Director of Intelligence)
Brig. len. Vernon Magee, Joint :A:1ff, of JG (Leputy
Director for Intelligence)
ir.r.alter F. ?..;o1by, AEC (Director of Intelligence)
Victor . Kesy, FI (cting Assistant to the Director)
Lt. len. w. b. 5mith, DC1, airmen
Use secret, Nov. 160 1950. In I inutee, 1950.4953,
filed in qixi/Li.)
2 :,:arch 31, June 27, July 21, and tugust 1y50. minut a,
1947-1)50 (:.;ecret and Top Secret), in VZCIP4t/PC files.
lapter III, below.
List of :4; subcommittees, 1947-1953, in an undated.,mper entitled
"The Advisory 6ommittes" (beoret), p. 114-15; prepared
by U for the "Clark Committee" about Autiet WA; copy in
(;/:-.L files.
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economic intell
es althouh blne for one hed b je1 nor
were there any Pctive subcommittees for consitLerin; inter- :ency
interests ir other topical fiilds
such se political and Ailitary
intelligence; nor in broed "supriedepartlk;ntel" fields such as
national estimates and national intiications; nor for administrative
and other support prodema that milit be common te 11 the intelli-
nce agencies.
practice, did not have exclusive reepor tb, ty, in
195o, ro
ordinatin:, all aspects of the Oovernment's intelligence
orAnization, nor was the sole adviser to the N3C on intent-
ence activities and problem,.
In 194V-1949, for example, the d a ,roup of
(Asti 4uts ed consultants, from outside the grrm.nts intelli-
gence orartzation, to make a comprehensive survey and inspection
of the -overnm nt's foreign intellig nee pro :Tame; and by October 1950
the recomnendtions of that survey :roup were still on the agenda
of the 'ZC.
il intelligemee matters, to cite another exemple,
were beth - .:uorLinated by the U. S. Communications intelli?ance
roard .2 Mlile was represented on this boar6,
1The conomic Intelligence C;ommittee (.1C;) was established in
'lay 1951, but it had been recommended by IN/5 in
Deoelber 1949. t-,ete Chepter III, below, and IAC-D-22,
lay 1951 (ecret), on file in O/D Cl/!.;.
2:3ee Mo. 9, .july 1, 194e (bp secret); copy in 0/X14.
files.
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the State De,Artmentle inteiligeome,chicf was its chairman, as of
and the t.;efenee :epartment dulinated its operations. !voneStiC
nce and rel'Aed mntters of internal scurity, were 'leen-
while coundnete6 throu41 the Interdaparthental Tnt1 1 nce !;on-
filmes (110 ,7ed the Interdrtmentel Committee on Internal Security -
0.210, both of them headed by the :rector of the I. CL as
not reeented on either of them, except on invitational trais
for consinering a specific matter.
There were till other inter-agency intellience coordination
mechnniems 1550, in which MA did not participate or particivted
only indirectly. In occupied lemony, for example, the 'tate Depart-
ment's qigh Commissioner for 'coupied rIermany (AI:700), throuh the
,!hie of his intellionce division in Frankfurt, rve ca thc
rankin4 re:Jreaentative for coordinating ell U. S. intelligence ac-
tivities, overt nJ covert, based in that orea.2 In the Tar act
Prmstrong, Jr. The fact that he was chairmar of
in 1950 is mentioned in IfiCeD11 (Jecret), Dec. 29, 1950
copy in 0/j1/F, filed under "IC.
hhute, Oirector of intellivnee, =i17,;G, was ex officio
J. S. intelligence coordinator in Germany. while his
kluthority was apparently clear enough in HIJOals charter
issued tu him, in practice his reeponsibility was evidently
divided with the U. S. military commend in occupied 'ormany--
iNiT., so the DCI was told in December 1950. Sea OIC
memo to i:,71? bee. C, 1950 (Secret), ettached to rC1 Staff
:onference '"mutes, 15'50...53, in 0,Aci
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it WOO the :iefense :vpartmontle Far
eneral '.facArthur, *doh in l0
coord:nation Ruthority.1 In Vip
eaet-geme,nd (F:',Z,1, beaded
apparently had the corresponding
finally, the ,:oint
of Staff were ,rovIdin various eatihaniams, in 195i), for coordin
sting the Ann -1-eAem of the Army, iry, and .;,ir 'cree which were
41rticipatin in verious aepects of the efense eepartment'e own
departmentel" intellience programs. eTlder the JCS, for example,
the surveiilrnce of hostility indications was a militaryecontrolled
Activity coorcinated throuh the Joint Intelligence indications
:.:ommittee (.31; e32 end the inter-Service exploitation of captured
weepcns and supplies was coordinated by a staff that later became
the ,elint 'Isterials Intelligence Agency (JMIA).3 While such inter-
a.enc;; coordination mechanisms were outside CIAts jurisdiction in
1950 rnd :111_.7ht be called "purely internal" matters within the
No precise statement of the intellieonce responsibilities of
F:C (or FOM), as of 1950, has been seen in the course of
this study, but that command's coordination responsibilities
were im,lied in an "areement" of April 22, 1950 between
FC Ceneral Willoughby, jeneral Mactrthurls intelligence
c!,lef) and CI!, (Frank 0. iasner). This agreement was men-
tioned later by the DCI, in a letter to the Acting 2hief of
taff of F.C, Jan. le, 1951 (Top Secret, TS #43568-W1
filed in 0/!Cl/HS, under "CIA-4'U . .n.
2The JIIC was established by the JCS' Joint Intelligence Com-
Aittee (JI), about Aug. 8, 1950. See IAC-1-10 (Top Secret),
Dec. 7, 1950; filed in minutes, 1950053, in )fIcI/EA.
3The active concern of the JCS intelligence component for coor-
dinatin-7, the exploitation of "captured sources" by the many
interested l'rmy? Navy, and i.r? Force aeencies probably dated
from some time after the outbreak of the eorean conflict in
June 1950, and the JMIA wee apparently formally established
early in 1951. (2e chapter 1V, below.
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refense :.:?epr...rtment, some of them were of lovernment-wide interest
and were to tic: intc7r?%torlinloners). Sattass time, with the inter.
C.! .)C)r d na tiOrlh1rier:-. which CrA was sponsoring Lno developinz.
is internal Organization as
to
1950
Like 's 1tf,r-agency relationships and external r Esvonsi-
bilities? its intermi crganization apt its intra-Agency relation-
-
sht_s were also itor complicated than they appeared on the singls
page of It. ,,;eneral organization chart. The organisational framework
of la headquarters, as it wee functioning on General Smith
arrival in October 1950, consisted of seventeen major offices and
staffs, each headed by an Assistant Director or a Chief) In addition,
1The 17 components of ,31A Is headquarters, together with their
heads, were as ''ollowa as of Oct. 1, 1950, listed approximately
in the order in which they appeared on the latest organization
chart snc3 the latest list of key officials on the ;Arectorts
st0T:
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the Oirectorls immediate orrt6 :included. the Denety Director (a poe
tion vacant since about 1949)a' the ,eetire7 /:?71J ?
"persima assistant" to the Hircetor.
A' the seventeen major okerating coeponenta, six were llrectly
enaged in n: in and conductive: Lex "substantive" cctivitiee of
coordination, prooaction, collections and clendeetine services for
which alf- had continuire7 responeitility; while the other eleven,
together with some of the subordinate divisions in the nix "substentive"
offices were ell performing functions are services in "eupport" of
these substantive intelliqeme and operational activities.
No sin7le j,hrase can objectively describe the above oreeni-
eational pattern of CIA's headquarters, as it stood in October 1950,
except, ?erneps, that it wee a "functional" rether than a "regional"
pattern. :Itch office conducted a number of specialised Nrctionn,
processes, and services that contributed to the complicated enter-
prise frequently celled "the intelligence process or "the intent-
Immo cycle"; and there were no overlaps or duplirations on them
eeAch could not be defended by the office concerned. Yet many
functions such as liaison, collection, reuearch, and references were
necetscrily divided amore: several offices.
1CIAle office nomenclature, of course, before and after 1950,
did not help to clarify the "functional" division of labor among
the many specielised offices and staffs. The wore of i:olicy
coordination, for example, was manr4ed not by the Office of
olicy ',:Oordinations but by ;a",-J/cJi?.rs. Collections in the
sense of n field enterprises was managed not by the Office of
Collection erei ansemlnetion but by and ono. The Advisory
onci1was no more Rn advisory council to the Axector than
was any other office or staff. And so on.
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To somv extent, oxnitioria1 2,qttorn in 1;60 could
be described as h divisim batman thii "substantive" offices, operating
?
un6Qr clirectives, and ther-ftOpport" ofriarle which were doing
their houtin 4 TrIu substantive offices coneisted of the following:
for Inter-oTi:ncy coordination planninA i, for national
inU1li;r7c ttScr.i.; marmot I together, or related
"17,0S of ixtellience resettrch and production, and for int:,ency
coordInt3.on r. hot production fields; 01) arid for overt end
covert collection, reseatively; and OPC, for cliindeetire operatiorrl
services relatO Lo the ovcrr:lentis cold war programa.1 In Support
of those offices were nine fld.inistrutive staiTs which '.Jrcvlded
personnel, tad.Tet;1*, i)1:-ocurement, legal, nanment,sec7urit:i? and
other r%ollittilm t;rvioes; ,lnd two offices (Of;13 and the Avisory'
whieh suported the H:ancy's substantive activities with
aectnUnd iltrary, reference., contact, an4 dissemination services.
Yet every l'ubstantive office also had soma supporting functions of
its own, w61ia th ;opport offices were not altogether devoid of
substantive ?.nterest. For oxi4le, 0A3 hed the lg'enc4s contra
wv library; 0 was apandin:!; a ,,00d part of its mancower, in 1950,
less in E;rouction than ,in indexin(; and collating informational
CK was ..Averned by 10/2, issued about ;4aguet 194e.
This tj.c of directive is an naction'' or "s51,41ment"
doco,,lant scArate froA the N'SaD series.
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Qooperation
had an entire ditKiejok (tiliCrortd.gn
Di SUM,
or P neede not it;
ref, ens', and tr
informational documents; end
of support activitieS,
trati,.e tioort staffs.
tut in
on foiei an-language
ducting a
rurthiSpore, aaat of the so -celled
stantive offices had on administrative 0
conducted for itself, oh tever traini 4 OrOgrans were brIl.n,;
gency imv150.2 vIra.1y, then, non-snbatantive offices
in the
and staffs frequently partioipatod direc ly in tbe Ageney's
activities, and rear
fesslonnle in whatever OProislisrd
derforminK.
lin of about June 1950,, Qmly 8% orY-
the "preparation of finiebid in tail
use for "abatracting, cataloging, 4
reports," and 37% in sveliating
2
.s goin n
22% was
ng of intollionc
conducting
liaison with the collecting alenijos, and working on related
non-production problems. bee :';IA "SOmmary of Operations"
for Fiscal Tears 1946404 Oct. 1, 1950 (Secret), especially
the graphic chart laballod *051 I copy in WOMHS, filod
under " :IA . . . ."
While no training functions appear.rormally und any of
the office dascriAions ID CL 'a ordanisational manual of
July 1950 0 I they ars mentioned, at
least casually', ia /MVO of the-ofhoe histories (on file
in 0/X1/36)? and In the If annual budget estimate dated
Sept. 1, 1450.
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To descrihe it in another way, CIA's ozaton in l',50
conformed to s eotra11ad pattern, mak/ offices zinc stPffs
rters ard many milStemp and stetions it the field. It
4;,3 ,;:c>7.0171 to the Ht;ncy's or4aniestion chart of 1:0,
the %ilrf. enci: of these components "reported LC t1 to
tor, tz: L. the management specialist's x,:rssion; End
accordir, to t ;.octrIne of good mamagoAent, this may have re?re-
?,cnted Ln "!,panof control". but here, toe, t:rt were
exclptix113 to decentralAzntion. Th uLiit,4,snaKcent, ersonnel,
'rucarement :le!uivaAents 2taffs, for example were :athered
tcthr under the LrA xcutive, accordin to the ensIrt of October L60;
zurid in actual practice, notes of trx other offices and utofs probably
so reported to the :xeontive rather than to the Arector? esdecially
sinoe tnom had b,..en no laputy Director since '4ay 1i149. tntelligence
;rodut:tion In 1, tc cite another major exception, was virtually
f:ralized In a airvle office Orli, except for the s,scialised
field of scientific intelligence.
P.other spmewhat over-simp4iried classification or
ilepciqurtE:rs was that it represented a oivision tetwoon
"covert" End -overt" activities. Thus, there were three princi;a1
covcrt offices fs O, u 2, end the ',pecisl .ndz;ort Staff.
.11 the otour f'ot;rteen ooP-yonents were lore or lelis overt.
many ot the so-called overt components, es-,,coloily the
administrative staffs, as well as Ci and :were praably
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spending at least an each of their ?ffort in servine the covert
"operations' fficeu eo thee were iw eleporting the overt "interne
Tame" offices. Oe the other 11,7-114 the covert office of OS, for
example, controlled certain cowman services for tele entire ;.-eencee
such As overt end covert radio and cable communications; and was
performine certal other services, in eddition to field. collection,
which were easential to the work of the overt offices. one of the
cevrt offices, eoreovere were probably as "sensitive", if not :ore
sae than some of the covertle controlled activities, in ectuel
eractice 1950. Whether the offices eieht be cleusified as overt
or covert the gencyls general security directives, as they related.
(for exemele) to interoffice "compartmentation" ad to the restriction
of eoemuniention between oficee applied equally to ell offices in
the t,eeeneye there doubtless were Cases where "secrecy" was being
colied iore rieidly in soAe of the overt offices than on "the
covert side."
tlethor IA's internel organizetion and external relationships
in .150 were as sieple ea its 1-page oreonizetion chart, or as
colelicette ee the varlet:, of epecielties adspecieeists that were
centributine to the interneence process, the new eirector was in
anJi Case eonfrented eeth eressine organizationel problees ae soon as
he took office. eethin and outside CIA, there were ceepetine needs
for the bvernment's not unlieeted resource or intellieencee There
werc4 furVierore, conflictin points of view and eriorities ene
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overllyping jurisdictions, as well as priscictions thot no one wee
taKing. There were :Ilse specie' fectore effecting clIA, 91446 "
eeen :re in the internetion:1 eituatiomi:Cieneressionel end e.H;t4, -.1oe9e
discustions of the need for mitiliyetio!- or at least "rf.,-mobilisatien";
the possibility or new divelopmente in intellime techniques thr:t
ii. ht upset cstAAishod .:Jnietrative puttc:rn6; the zaciaterelk:
conflict between "security ant, &..frioiency" in intellience w.rk; nd
other fn-torl which afrot,ted the efficient eleTenieeten of intelli-
-cnce activity. Along with these was ::IcAs loeewilit unenviable
ivottion or bring both the youn4est member anang ion; ,;staL1iehe0
intelligence e,?encies, an the one agency that had tne brceeest
41thority for coordinetire; all of them.
In relation to the recent outbreak of the f,oreen way and the
developirv cold war with the "lioviet pire," ell of .;V's ergani-
zational problems hid a new urgency. They were eummarized as follows
on ,ptember 1, 1950, a month before "Mneral Smith came on duty,
In annual budget eatimete intended for the resident, the
fele.mt E42renu, and selected members of the Fenate kmd ouseippro-
;)rintions omnittlJosil
ensure that its own intelligence production
effort and that of the departmental intelligence agenciee
ere continuously oriented toward current and lorm-range
requirements of the national eeturity interests ahd
1":ntroduc,tory tatementm (Amiret), p.14, of CIA Nadget ,:ntimete
for eiscal or 1952, apt. 1, 1950; coPy eppended as Tab
of ?dmutrollerls "Aistorical liotes . . . pm 1945-1y52 (Top
:ecret, P.; ,i74650), in 0/D4/H3 files.
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?,:::::.
. .
'-object:Ives; Dhat , intelligence collection !-nd source
'Alitipleittion of al A* S. intelligence 41,:ricieS effectireU
ms
iii
Meets the r(e.nlireie iA figld priorities of t)e intelligence:.
'o roduction effort; '' ', all cete ll
esries of inteigence
l'uiremente bearire7 011:7 _ ietionel seourity ara ei-ec-
-fieally identified and difOledi fthael reeponsibilities
for :1011eation an6 .',rut.ft.iction action are epproprietely
alloc;,tto Lhroughout the governmental intellieence structure$
and rInHily, that tbe relntionship between the ..,mvernmentel
intellince effort asul the policy Plarmir !:71 operational
levels L,' 1-.c imvernment Are 'strengthened in orAtr that the
I:J.cllienc,, ,)rocesea ia effactlyelY end continuolls1:, Urouht
tO .._:.e4r et 6 A:th levelais,
-.,
?r0003e1 b ad Ideas for eoranizstiont October 1)50
There wee, i:owevers'no lack of orqa ticha dlehnin4 and
mene4ment aJvies available t.' the new Arector in October 1950,
from the number of eters within which had continuing
reepoAsibilities for organise-time,' '8.1f-criticism, review, and
im?rovemcnt. o is than six major staffs and one intra-fqency
co,littes were involved in smith organizationel plannin#?- 89 follows;
(1) The Asnaewent Staff was ected to edvise the
Arector on orgenisational strecture and on "*n cent
imrew.montso generally, to rationalize conflicts in
state!4ents of functions and jurisdictions amon the several
offices, to prepare the Pzenc:ps composite oz-anisationel
chart end menual.
1The on.einisational planning functions of four of these staffs
texcopt the oersonnel :Aaft'and Legal A,effs) Are outliried in
n survey of CiA's "management improvement activities," pre-
pared erout _eptember 1A9 for the Bureau of the eudett, as
part of budeet instigates for the following fiscal year.
cubsegeently this survey was issued as pert of General j.?rder
qo. 23 (ccret), ::Arpt. 19, 1949, as an organizational planning
directive widressed to ell ?resistant Directors' end to heads of
the other components. (For copy of this OrUer, see Aanagement
staff files, in C1:4. qecorde ':;enter.) yeer later, on ept. 1, 1950,
eililer stetement on ';'iels "...4ana?Tment Imerovemont "ctivitiea"
was sent to the resident and the PIA et Tiureeup AS part of
fiudet timate for Fiscal Year 1952, provlous1;i cited.
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(2) The Cdordination, ,:peratCans? and i(Ans Aeff
ws resonsible for reviewina proOosals for tbe improvement
of Uoth fatornal relationships ane its intrganey,
coordinatior
t3) :11etiOstaind A.aff had an
inscction :roup ror condacting "special ',nvLtAlottons of
operetinq an aCministr,tive activities" cr,3 for reccrtmendth:.
improve:lents to the trector.
C. The :;,14d4et tAff knd various lc tri 1nnin.
tnd exprntature control LI-lotions which wei2 ntendeo to
;revent "empirr I-Ili-tiding" by any one operetfin! office nn?)
to assure, on other thin4s, "flexibility of operations
o'hot waste ? ? and withot non-productIve work."
(5) The .crechnel Staff, amon it other.activi,ties,
euervised :,;ersonnel clmoNifications .rnd salary stuAures?
orers or eyenple? to uncover mnd correct onneceteary
or undosiroble duplication and competition between speeiol...
ised ::csitions On different cozlicnents 07 the
(6) The taft, wnich reviewed 2endirg le4s-
lation r.ld proposals nor NSC directives, bad prepared
various briefs for jhe now Arector on organiertionel
problele
(7) ;7:11e flter...offiee :rojeot eview .;olatlittee
heeded (in October 195o) by the CW 'x(4,cutive, which Pilo-
coted funds for new i)rojects not foreneen in the annual
budete, wms expectetj .r-xion other thins to scruti.rize new
pro:ect-popossls critically from the, viewpoint of ossible
inter-office juriselctionml conflicts or external ccor-
dination roblems.
2-ee 6teff interview with LAwrince -oustons
::penrral ..ouneel, in 1.92, in 0/LICl/Wi files.
of Av. 2, 150? the 't17 consisted of the .Jteeutive (ahelmen),
the Azet ricar, tho ,ssistant Director or .:,hief of the
prolect-sonscrin7, office or offices, an the chief of the Ideal
Aaff (the lattr without vote)."ice ministretive Instruction
!(). ()-2/1? ov. 2, 1160 (Secret), mmone records of -lanonent
',,teff, in flecords enter.
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In each major opera ng component of the et'elcy? moreover, the
Assistant Areetor wag expected to review the internal efficiong,
o? Joown effice and correct overlaps and duelicetionr, if
with other comeonente and with outside someies.
n aeition to havinl acce to.theee internal
ources for
or/aniaational aevice, the new Director wee confrontd in ()ctober 1950
by a variety of recommendation* end euidence from outside agencies
end ,,,roupe. Far froe being r strictly "with the f e ily" eatta
of "eurole internal concern" to the Director and his staff, .ee Is
oreanizeteon and its organisational problems bed for same tile
evoked the liveliest intereet on tee part of other 8ericies of the
Icvernment. (:TA had been reviewed, criticelly and sometimes in
det il, by various authorities almost continually during the pr
ceding two years; and some of their recommendations were till
pending. when eeneral Smith came on duty in October 1950.
The erincipel investigation of this kind was, or course,
thet mede by the "LUlles osmittee" 2nd endorsed by the .eC in
19491. There had also been an indeeendent survey by the "Aoover
eeenission," lore specifically by its Eberstadt Cemittee, whose
findinea, elteouen less influentiels had for the most part tended
to confirm those of the Dulles group.
,Iluotttr i, above.
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In 19t4 ",:vt 1950, the:Infense and 3tatc i:operteente had each
made further- stiidies 411.0 recommendation* or
:nrticular af,yects of
1!1:*. Is or ianizations one (by the 'Joint 0:A.e.fs or t( ) on the
ct;ntrol of CI,' ts clPnoestin a'.;:t,i..vities under wE>r
.!?)ndltions; Fine the other (by 5tete's inteiliK7ence cl:lef) on .171ft.ge
,roduction d inter-e:-;enoy coordination functions.? ti1 nother
oroposel wnslnk..t"t .;ointly t:3-;, the two klepr-rtmenta? in e ntudy cult
3
'o in 19)0,- eolith; for the rtokyPnization of two rn.octS
of i fa production responsibilities (egti1wt?; nc urrnt
ndi-
c'tions) into nowly-titltd "national Intelligence roup, dis
cussed more fully below. P`inally, the Turau of the-6ueget had
been qu ie t 1.y ;:rorioting e continuin program of "TIVinroyerftent improve-
Ilent 4ctivities" throughout the(*.averment. flthough CI.1. was c;ar-
ticipat'in.7 in this iA?ograta in 1950, it had recently reported to
iemo frol. h;:irmen? Joint /liefa of ;teff, to ,ecr,Anr:, of
eftmso, '? 11, 1960, nnd memo by I to Brie,. ion. ,,:ohn
'ruder, ?:ffice of ',rstary of 4.efen, (Top :ccret,
43639); cies
du, . tate ,epaftmentts staff study was the so-cclled "".!--our
aper s" tud;y, duly 1949, sent by State to ,CI, 2, P.V14ti ?
coy of tt;,.: ,,turiy, and intro- comments or tt, are in
;A.;.71
This study, entitloci study', iy 1, 1?150
(:Meret), 'wee sent to the by Under'.:.-ecretPry .4ebb of the
Stete i)a.rtrItent on Jul:" 7, 1950; copies in t:)/I/I:i!:, files,
and in i;)/..;;Ii/:-R. See also "T -ebb" file, in
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? Budget Rureau that it
standards and concepts e
its covtrt activities, -nd that ft we
to
v out offc
its inter
" itheut t-1-10 nuthority for direct
Influence
at d
negement-oant
et.icn L;rogreat or to
icult,"
ddition,
nation r --onsibilitiee
rvey 7;roup after October 1950
Of all the o isenizetiond recoasndctt?ne that confronted
Cieneral Smith in October 1950, those made by the emiles jraup in
1949 were at mem the most detailed with 200esome pages of findine p
conclusions, and recommendations); thot cosprehensiv (in that
tbny covered entire internal orsnisatton, sne its external
reletionshi:4 to the other agonoies is well); and the most objeotivo
(in the sense that they represented vieWs of
experienced men from outside the
es disinterested but
Arrernoentle intelligence organi-
zation, end men who were not ex officio representing the views of
er any interested intellidence agency
on the outside). tsides being detailed, oomprehonsive, and objec-
tive, the Julies group's proposals were the most authoritative and
compellin4 of all the tluidence that confronted General Smith
eny interested office in 7..A
1Letter by to Director, Durean of the aud4et, (secret), no
date (aeout L4pt. 1949?), forming part Qeneral Order
tie. 23, .4,dtember 19, 1949 (Peoret); in records of lemgement
aff, in LZ,', _ecords Center.
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between July leeZi, when he sea bein:: aperoeched te tLze ee!,tc -evese
to be the new October 1950, when he aFelmee offiee in T.
Is endorsed by the !;ationel ',ocurity,06unci1 H,;_5Qh,l the
eeport hed become a blueprlet of' internal chaneli that the
was, in efect, ordered to install, s her been notee, no
end:Lee:1 eYfort Led been lade, before October 1950, to install them.
In snort, the reccomendetions of the eulles ,:enteittee could
not be 147ner0 nEnY CASO, but tlj make their ecceeteree cla the
more certnin, General 5aith's new 'etputyi eilliem A. ..iheicson
author el' the recommendations), see.?eed to loin emitn only on
eone
itione neone other thini;s1 that emith "would read and aperove the
Wilco rt."2 Aeanwhile, one of lenerel Smith's first formal
bets on treine orrice was to attend P. eeeting of the tictionel
eecurit:i encil (on October 12, 1950)? where he :Armly but
cautiously aenounced his intention to carry out the dullee :aeon-
mendetlone, with one major exception. Or October 20, he reiterated
zee ehepter 1, ebove. The lieCla endorsement, in 611e 1549,
took the form of a document entitled eeC-50, and WES en
endorsement, technically, not of the text of the eulles :eport
but of se4eary that 1ad been ereered, about ,y 1949,ty it.
;en.Joseph leNerney? office of the :elcretary of Jefunse,
in consultetion with 4. erk 'rmstrune, ,r., intalieence
clef of the tete Doerrteent, and others.
eetetorIc 1 etaff interview with edilliam, ? Jackson, Feb. 15, 1565,
in 4 KL files.
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his general adherence to the_
with the Intelligance 'dvilahry:
The principal changes; deftwing from the Jullee 9eport thnt
thus med so certain of incor;oratiOn into th actual fromeworx
sir-' summarized below. rive now M4tvietons" were rocon:rlended
to replace the 15-some components in headquarter's: Estimates;
'easersil am_ ,eports; Operational !70oord notion; and Pdministration.
Zntelligenoe production ftnotions were to be realigled Ps
follows. 0 which was
tional intelligence esti.
ience was to be
mates and all other types of
replaced by two new division* tee", and "Research and i?.e-
ports." The new ;:stimates 4Yi$ton, as a email but esperste cox-
ponent of the toner,: was to do the eatiaatrg work that had been
divided ong Od.r. *ovens
ts.
Mess estimates would be drafted,
not entirely centrally, tut with renter reliance on departmental
contributione, while the work "corrclat ilictin' intent-
once opinions and evrluntione among such ocntrthutions should be
Themae Ili of the on Oct. 124 1,50, was referred to by
smith 1?,er, at the JA:, meeting on Oat. 20. :Joe micAtes,
20, 1950 (,ecret), in Wl/US, filed under ";1.0".
ithis,!!one.exception" to the Dulles Aeport was the mer:er
of 0:31, 0-C, and DO/Contact Division (he did not mention
0(19 FOreip Broadcast intelligence Division). The "coor-
dination of these office* .'w . could be achieved by llore
effective coopertion., witbout merger," he said. is later
decision was somewhere in between: in January 1951 he ?Touped
the* all under the new DD/,lanef and in 1Y5Z (60 iuld C were
Actually mered, and ';0 was placed ender the DaIntelligence.
2Bolles Survey aroup eport, January 19149 (previous1;: cited) p F1,72.
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shared Jointly Ly the -attest,* Is staff And the
lii?
genes Advisory C;ommittee
21W1 C wee expected to take a
"lore active nolo" in producing; ft shed estimates, not only in
or6or tP;:-:.17,e and harmonise interdepartmental diveri.;ences,
1.1.1
'),-;.-,roduet, to Ise the work of estimst!n.: as t Aeons
for. tictin 'icficifrlicia and overlaps, as well BS the accoolplish-
ments," etia in tt.lc ervernmentlis intelligence collection
, 2
i..%),11ntion worN. ? ? .
? lbe new H-sti%intet Division was not to be??Involvoe, however,
n eoordinatin the production of other types of natlonal
tntofli-
gne. nun, tnteUigeDce wee. to Uo transferred to the new
osefIrch and 'Aiporta iviaion while the current intallence put1i-
3
cations 7411.jtt well be iscontinue0.-.
The new Le.strch ard ,moi4mts Division was, in effect, to
produce wMterver "del?trtmentel" itn IP might itlt need
to mtget its ;w1rtieu1ar 8k2port commiteents n obligations to its
own oAtrations onJ to Wl-re 4othority; ant *qv types .of research
1-,
444-4 61 72.
p. 61.
3The evcluatio f h,t1: ty 7.ndicators ALrot, in the form
of "netional indications% was not 'rlentioned t all in the
redort, rdthollh the aloeoly relPted oixpt of current
intellir;ence did receive discussion, but only then to be
luetioncd4 k;/ the :,ullos :.-roup, as A leitimate function
or Ibid., pp. 70, 814460
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t;lat rtkht fl the future be authorized a. a "service of common concern".
in this .;ro)ost:d i tr, the exietin Q untte for ticIntific,
eco-
nomic, end Ao 1 creseareli were *11 to Is plecod in the new
1
research division. = ,h-11, the new division waa to take over
ceyto:!_i; t_ervioe:i fro ,1 othir offices, ch1;,' t
?1Wexin,,, rence, en6 oc:iat,ion zel.iv?,!, which were 1iv1oe0?
at that time, L tween cntrza 1ibiO, epeoilim(1 Lio-
hic and tndu re4sters, jS /orc,i0 ,oculonts
t-r /3 Aap 3:;)rr;, and c.;; Is ;IctoriCi
field collection responsibilttics? ovcrt ttrd .overt,
to?ethel' .1.ts separate but rated office for clandestine opera-
tional servi, ,:cre all Lo be "closely tn ereteo" into sinje
new %.:perationz ivizlon? C,Q400 ari f beint; atollsd vs separate
This serder s to involve all Aclents in the two covert
of ficci.s I L It would leo place under clandestine control
:fOls (includind Field offices in thc )nited 'states)
the orI;n rondcast intellience Division (tT'l ')Jo
t;3. .zicrtific Eranch cf hnd meanwhile
71770re ela.:uary 1549) been shifted out of ()A:7 and re-er,tabliahed
PE a nt,:arz-tr.: ofrice?the Office of bciertific intelll .cnce tt1)4,
:41e Cliapter VI, below.
2Lulles .1roup ,eport (previouely cited), p. Ltt 62,
t3, 103.
:bid., pp. 96-107.
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-
00ta or cOmponent, the 1,01444100WOUmonts (F1A, not
-
bin g A field collecting unit but a.querteri facilit for
viding library, indexing, reference, resezirch, And tronelAtion
services on foreign-landiaige deouments, wastcte trnnsforred, non;
with errlooue types of serviont in OCD and 0 .J!1?, Lo the now ,Joseeroh
:=nd r'sporte Division.
inter.sgenoy cord1n tion rcsponsitiltir and fanotions,
other than those relating diretot4 to the prod4ctLon wld collection
activities described above, were to be reof.ened inti r new oor-
dination Oivision.1 The :vile. Group was not enti-el clezr, iiowever,
as to how coordination could be contralisee In such s stAff
division. :one of the Agwacy S liaison work with tre joint ;hies
of :taff tte National. Focurity '-'iouncil's staff, for exnmple,
would be Oacentrelised to the opereting branches most concerned.
On the important natter of inter-agency 2:roblems outside of piamhington
headquarters, however, the Dulles 7iroup tvparently made no recom-
mendations, except to note that responsibility for coordinrtion was
"divided", rInd that it variec from area to areas in ea-,h 06904 in the
hence of whoever was the "Senior 9nitsd As tom '41presentative" in
that ares.3 n the other hand, in Washington the new 'bordination
..41111.1111101.0141.1101?10.111111.111114.11110*
1 ibid., 43, 46-48, :)..;# 61-62. t;se r.,:hepter /17, below.
2,
Survviq Group aeport (previoulay cited), 47.
3Ibi., pp. 4::.-449,
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Division was to inhi;r t IA loon DiVlslon, te'teh conducted a
clearin,:hous for arran,!in,
epeditiSt, ccntrolling Agency
cL..ntcts ;.nd liaison with the Axv al.40 nun encA-:'-:s thrOu
out the overmlent. !Ince this clurnho? function Wis not,
hdWever, n "hi b1re1 patcykikinjactiiity but LU essential
liddle-inn process, betwn roses:VI' ?ersonnel an, the dk4wirt-
mental 1,12ction-cuatro1 offices, the Dulles -rvu rranki,y predicted
Ulat -oordination Division conse,_iwnce of thiS
droposed to frustrst4A ,A "the of 4dministrO,IN,
involvoC, on,1 tht resaltIng delay in the sTAisfcction of .?7ormationa1 7
requests" invGlved in such lir,lson work
FinPliy, with rosect to the 40scyls -aniort
stfr's, ;110 ito other related support services and !int-control
fettvities t.iwt constituted the reminder of Its headquarters
oranizaten, no stnffs were recommsnded atelished b, the 7'Jlle3
rnr wcre any new starts recoamendad, slv,..h As a ncenter,
or a searete cornunicxitions office. The exiatin,c7 st41"fe vere to be
re-rouped onfir e new P.dminlstrative Division, hut the Wiles lroup
urged thA, overt covert administrative services 6o. solshow comm.
partmentsd fro ero other. t7omplete "centralization or $11
1,1bie., 119.
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administration in ono office is undesirable., since secret operations
require their own eepara to afteastration," the Dulles ercee
conolu4ed.1
The tone of the Wiles Report was conservative in, recommending
not eepension but restriction of CIA to those functions asigned or
rive free directives of the eationel eveurity Council. CIA should
"discard," especially, any intelligence production work teat was
"sueerfluoue or competitive with the proper activities of depart-
eentel intelligence' in the other aeennies, the report said. Uki:
was perticularly criticized for having undertaken to produce what
the Dulles ;roup atigmatised as "miscellaneous" reports; and for
attempting to become "a competitive produoer of intelligence on
subjects of its own choosing which can by no stretch of the imseine-
tion be called national intelligence.e3 Conversely, however, DIA
ees criticised, elsewhere in the report, for not having asserted
ene expanded its authority; for not being eon: "aggressive" in
premotine inter-agency coordination and cooperation; for not exer-
cising better "leadership, imagination, and initiative)" and for not
givine "continuous examination" to the other intelligence seencies.4
Three fields of intelligence activity were singled out as
being particularly" deficient in coordination: scientific Intelli-
gence; communications Intelligence; and domestic intelligence,
eF.
2bid., p. 11.
3bid., 11...?ee also liapter 1, Above.
LDuiies ervey '.roup report (erevionsly cited), e,
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inaluding counter-intent
re
at which domestic ead,
gnitateillgence overlapped.
admit
mere,!lowevero that inter a, noy tion wee dirrioett 86
long as there was a "lack of mutual confidence *song the de:Art:tents
and said that all the Intelligence icies must ultimately "share
in the general reBdonet
in coordination and for
or ver failures and defloienciPs
?operation existed.
hateve
Fine ly, this function of coordination," in (Ation to
being stressed by the runes )roup as
jet su etaritive responsi-
bilityin Is jurisdiction, was reco-rnen? as something to be
more widely emphaeisad and siEvertised, in CtAle public relations, so
that CIA would become better Womb, publicly, as the Government's
"400r6lnating agency for inte14gemoss and thus help to "cover up
rather thar to uncover the secret operations entrusted to
one of the organizational changes in as they were
actually developed and installed after c)ctiberfl, l95D, were, indeed,
based on the Dulles ,Committee's oneendations, especially as they
pertained to e tine, research, secret operations, and oomart-
entalisc' acminiatretion. 'Other rectlioendations however, were not
lIbid. 4. 56-57.
2Ibid., pp. 45, 60.
pp. 36, 39.
morose.
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followe by -;lithts administration. zione char-es m:,dc t,1- ti % were
derived leen from the :ciles wort than fro l other sourcas, or
reflected inter 1.0Plems not anticipateo by the Dulles
e:;npr6honsive WAS the :ulies Aport, however, that [44.i' ly
a CC,.7,10 te fisde or considered in 1$51 end l'A2, without
ddllytil it '6;- t?le edrrespondina ideas t:v! ;7iodin a of the Dunce
'.7.031Zittte,
;'4port frequently took on an a _lobt leg-
:ulles.hi
m ostly acknowleded the
17...ond, but :>lzio ed Tetlintic appraisal of the f41cts, 16
rddref;s before e:1,)10;se5 in February 1953,1 13::ortly after
:-Jeneral nithla administration lied ended an0 his own be;un:
JI:ckson and I sat down Ard spent a good bit of a year
fin 19462, with such experience as we had behind us, in
outlinin the kind of organisation that we felt shoald pro-
duce intelligence . . . That general blueprint is, I
believe, round. :With and till Jkckcons fnd to
some extent myself, durim; the paet two years, with the
able help of many others, have been trying to put that blue-
print into effect. Naturally- we have changed it here and
thero, but by and large, we have today, Ibe1ieve:4 a worAnz
organisation."
CV's natetions, Dulles went on to say, were, by 1953, "reasonably
divided, between the covert am: the c :rt: between the production
of intellinca, ending up in the finished ?roduct of the ,:)Mtional
H5timates, and what is done on the covert side . .
In
Alawrks by 411en Dulles, DCI-designote, Feb. 13, 1953 (:Aecret),
at 9th J".11cy Orientation '2!onferencfl? in Training
hulietin'4). 5, ''Arch 31, 1953 (Secret) along records of
::.nnaeigent '.tnrf, in :.ecords lenter.
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another comilEnt, :also in February 393,L Iil1es denied, however,
that any one ortinintiunna ,attern would, by itself? insure the
success of intellince: "There ie no easy formula or nPgis table
of orifniztiorl' in intelligence activity, he cutioned the '7T. staff.
Ian for a oftt3Anal Intellience :iroue"
ine major reortonization plan oonfrontin; 3cnern1 :;mith in
October 1Y-A7) cAme neither from the Dulles evitte nor from within
. This Arm was contained in a 'teff study" issued cointly by
tie nefense atyl tate Departments on -4a: 1950, but not sent to
!dirrliiillonkoetter until July 7, shortly before his expc;:tod
retirtnt ;,f; ,ir ctor was utliely announced, rive weeks before
.1encri1 qlithfq wat; 4'ormall; submitted by resident ;rumen to
the nre. The 1,tn we developed rinci:ally by Dri. dn. John
a rueer (In ,ertnse) Arlo 4. grk 'rlstron;, jr. (in tate)? nd
craled or the co,solidation of national intelli,lence production
f'unctions n iw orlponent in I to t-e lntFlled the "national
:Tnt(1.11,:enee 'ron;:)." This new ,I.ou,;) was to consist of two cvijor
staffs; one for the )roduction of estimates, the "national estimates
staff'' (similar to wht the ulles ciport prnionsed); an- the other
for the ourveillnnce hostility LnCications, the "current
1Letter of gretins by Dulles to all 7U personnel, Feb. 26, 1953
(estricted), on the occasion of assumin duty as in
"unnumbered re ulations" file, amon:.: records of :innnement 5
in dA ecorde Center.
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intelligence staff" (e feature net to b*;found in the 4:u1les Report).
it detailed charter for each of these two eters was included In
the State-Defense study, and it '8, Crom the ventae point of
"histv.rical hindsiht,n much like the charters of bilE and as
they were actually metallized earlrin 1951. ao Aention wee made
in the plan, however, of the thirc irineies1 type of national
IntOligence production?the ActIonal Ltelligence 3urveyf--presumeely
because the IS program was not s controversial issue. The AaTuder-
Arm8troe7 plan also provided for the then-dormaet Tntellieence
Idvisoey .',01mittee to be activated as the inter-ency opordinsting
cc,zlittes for estimates. The IAC was to be responsible, the plan
said, for reconciling cenflicts in intelligence opinion, on the
contributim; departments, in the 6rafts of estimates and in other
national intelligence products sesembled and disseminated by CIA.
It had been this one organisational detail of inter-agency
committee procedures, in the "national Intelligence group" plan of
May-duly 1950, on which the Hillenkoetter administration htd seized,
late in *July 1950, to reject the plan in its entirety. whatever
the merits of the detailed charters of the proposed estimates and
indications staffs, or the merits of grouping these two closely
related staffs under a single chief of a "national intelligence
group" in CV., they were not mentioned or a:focussed at ell in the
;irectoros reply to the State and Defense Departments, dated
July 26, 1950. Instead, :Vitt comments, and its objection to the
whole plan, were directed entirely at the issue of preservin?; the
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Director's inbividopl prerogatives and his independence of judgment
end decisio filitshed national intxilience. With
these cw!mnts, was chrIllenging the 1:1_1id thret that
te ntelILT.nce Advisory ComAttee? toether 4Ith t17, ,v,Amental
1L once chiefs assembled in thvt, LT