1961 INVENTORY OF CLANDESTINE SERVICES CLASSIFIED RECORDS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP70-00211R000800300016-2
• Release Decision: RIPPUB
• Original Classification: K
• Document Page Count: 11
• Document Creation Date: December 19, 2016
• Document Release Date: October 5, 2005
• Sequence Number: 16
• Publication Date: October 2, 1961
• Content Type: MF

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2 October 1961
MEMORANDUM FOR: Deputy Director Plans
SUBJECT s 1961 Inventory of Clandestine Services
Classified Records
1. This report is based on a measurement of all of the records
held at headquarters by all components of the Clandestine Services.
The identification and measurement was done by or under the direction
of the various Records Management Officers who followed standard
instructions, a set plan, and a standard format. The approach, there-
fore, was consistent, identification and measurements were reasonably
precise, and the data is sufficiently accurate for all statistical
purposes.
2. Total ho ldgngsi.n principal categories are shown by the
following table in linear feet by groups of organizational units:
UNITS OFFICIAL OPERATIONAL ADMINISTRATIVE MISCELLANEOUS TOTAL
CS FILES AUXILIARY FILES & MANAGERIAL CLASTFIED
Misc. Staffs 20.0 599.3
Principal Staffs303.0 5099.0
.Staff Divisions 323.5 3294.8
Area Divisions 2284.7, 6619.1
RID 4019.4 11237.0;`.
TOTAL 695o.2 26849-2
200.0
482.0
1534.3
487.5
705.0
6594.5
8142.5
767.8
5228.6
2365.1
2942.1
14211.0
528.0
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19388.0*
71U.7
4896-9
*INCLUDES RID/ARCHIVES RECORDS
3. Further data, comparisons, discussion, and recommendations
relative to general records problems deriving from or depicted by
this inventory are contained in the tabs. The most significant point
which emerges is that, while the Clandestine Services are geared to a
centralized records concept, the official system embraces only 29% of
its documents and 70% of its cards. The virtues of such control as
the official system embodies are indicated by the fact that total
holdings of "official" paper have decreased. On the other hand, total
holdings of auxiliary or "unofficial" paper have increased substantially.
This fact argues for control, in some wise, of auxiliary paper and,
since the CS staff elements deal almost exclusively in such paper,
increased attention to basic records management principles by these
elements is strongly indicated. Conversely, it can be stated that RID
and the Area Divisions are moving into an era of refinement in techniques,
approaches, and procedures which will provide for better utilization
and maintenance of official paper.
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). On the score of records disposition, Os headquarters has
held its own, so to speak, in that disposition of records has equalled
receipts during the past four years. Total holdings in 1958 and in
1961 are approximately the same although there are significant varia-
tions in category, type, and location of records. In 1958, 11.3% of
- CS records were at the Records Center. This year, 30.9% are located
there and 69.1% are held in the headquarters buildings. We have moved
15,299 feet of records, or the equivalent of 1,912 four-drawer safes,
out of expensive office space and into cheaper storage.
5. There are certain other notable characteristics of CS records,
1961, which stem from an appraisal of the inventory figures by func-
tional type of record. We have over 21 million document control cards
resulting from a plethora of document control systems, and there are
3.4 million index cards outside of the RID central index, most of which
lead to operational documents of one kind or another. There are 1,870
feet of personality data (125,000 dossiers) again outside of RID super-
vision and control. The 1,832 feet of chrono files indicates an abiding
lack of faith in the file systems themselves which is further reflected
in extensive duplication of documents, files, and entire collections
among and between desks, branches, divisions, staffs, and RID.
6. As a concurrent purpose, this inventory exercise was to accom-
plish the immediate destruction of all the obviously useless accumula-
tions in any and all safes, in part at least, as preparation for the
move to the new building. Debatable materials in the same category
were to be earmarked for later follow up and decision. On the first
count the Divisions were most cooperative. EE turned in 60 safes;
WH, 31; NE, 25; FE, 17; and SR and WE, the equivalent of 12. For the
rest, this first-round elimination of the accumulation of years remains
to be done, or converesely, we must continue to live with this consider-
able-residue in the more limited confines of the new space. The neatness,
order, and arrangement of the contents of CS safes in general was not
impressive. On the physical side, the Pandora's Box effect was all
too prevalent. This alone--the formidable aspect of the contents of
many safes--is an apparent and substantial reason for reluctance to
manage records. Many a clerk loses interest in records problems when
faces with the records themselves.
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7. The overall perspective of CS records is one of rampant in-
dividualism tempered by common experience and common problems. The
official system is limited in concept and essentially superficial in
its application, leaving many possibilities for the effective use and
utilization of official paper untouched. Outside of this system, in the
auxiliary file area, units and individuals have obviously proceeded for
years according to their own lights in order to produce the duplicate
files; numerous, incongruous collections, and the awkward procedures
with which we now contend. Considering records management as simple
order and discipline--a place for everything and everything in its
place--the problem presented by the Clandesti_ne,Services has scarcely
been touched. The record, an important tool of the profession, is
only somewhat accessible and, in many of its aspects, more a hindrance
than a help.
8. The tabs which follow present the inventory data in various
ways in an effort to facilitate consideration of the problems which
the statistics pose. Certain general conclusions and recommendations
are combined at Tab VIII. They are not specific and have not been
worked out in detail because this report, after all, represents a
parochial "records" point of view and clearly needs to be considered
in a larger context. Should these views be accepted, however, any
particulars required can be readily submitted.
DD/P .e a ficer
TABS:
I - CS Records Terminology
II - Component Totals & Change in Total Holdings, 1960-1961
ITT - CS Records Holdings in Major Categories by Unit
TV - Official CS Files -- Subject-Project
V - Card Indices
-VI - CS Records Di sposi.tion Activities (FY 1958-FY 1961)
`TIT - CS Headquarters Records (Statistics)
VITT - Recommendations
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TAB
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ORIGINAL DOCUMENT MISSING PAGE(S):
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CS ]RECORDS DISPOSITION ACTIVITIES
Although the total of records on hand has not changed signifi-
cantly from 1958 to 1961, the fact that an appreciable quantity of
them has been shifted to Records Center storage is a clear gain
since the storage and maintenance costs are considerably less and
the remainder, at headquarters, becomes more manageable. The total
on hand at headquarters is encouraging when viewed in this light and
also when compared directly with the total held in 1958. While the
input rate is largely a guess, it is not increasing rapidly as might
be expected and, at the one point where it can be measured accurately
(in RID), it clearly demonstrates increasing discrimination on the
part of the field stations. However, the rate of destruction and the
rate of retirement both tend to decrease sl tly, and combined, they
probably converge with input during the coming year. All of
these figures are affected in one way or another by special circum-
stances, such as the "Cunningham purge" in 1958, and a spate of
retirement by RID in 1960. Taking these factors into account as
best we can however, the overall trends are not unfavorable and the
totals themselves are not unmanageable at present.
The traditional device governing disposition of records is the
Records Control Schedule which operates in terms of file types`rather
than by individual documents or any other designation of records.
Government and Agency disposition authorizations are expressed in such
erms. In the few instances where this device has been tried in the CS
it has turned out to be a paper exercise and failed in its purpose for
the simple reason that there is no comprehensive file system against
which the schedule can operate. From the employee's point of view,
any listing of general types of CS files fails to relate to the actual
content of the safes. They cannot be expected to stop and figure it
out so they end up ignoring the schedule. After all, records disposi-
tion is initially a matter of deciding what to keep. With this decision
at hand, disposition becomes a procedural and scheduling problem which
can be managed. Without it, we can only retire the stuff and eventually
build another warehouse. The trend is illustrated by CS performance,
In the beginning we ignored the Records Center facility and refused to
participate. We are now an eager customer and rapidly filling up our
third of the available space.
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There is no way to arrive at any quantitative standards for CS
records as there is for commercial concerns and in some government
agencies. The commonly used standard of "feet per person" doesn't
apply and we haven't had measurements of CS records long enough to
strike any averages by function or by unit. We are left with the
standard we have always had; available space, hitherto unlimited but
due to be sharply curtailed in the new building. In the absence of
a comprehensive filing system, discipline, and all the rest,, this is
the most practical way to view the matter because it is realistic and
consistent. Disposition, like filing, is left to the discretion of
individuals who perform, in this regard, in a remarkable uniform
manner and seldom dispose of anything they really need. One conse-
quence of this essential lack of system should be pointed out. It
means that the small quantity, which is officially considered to be
vital, must be managed sheet by sheet, and this becomes significant
in terms of cost. According to GSA, the average cost of processing
classified government documents for final disposition is $1.25 per
cubic foot. The DD/P cost for processing a similar quantity works
out to be something more than $187.00. This disparity could be
rationalized on the basis of our unique mission were it,not that
efficiency and effectiveness in records, as in commerce, go hand in
hand with costs.
The following table gives the totals, as indicated for the four
year period, for which we have useable figures.
CS RECORDS DISPOSITION ACTIVITIES
Fr 1955 - Fr 1961
Records
FY 1958
FY 1959
FY 1960
FY 1961
Received
11,237
11,466
11,700
11,934
Destroyed
14,573
12,503
12,040
9x035
Retired
2,596
3,062
5,318
3,382
On Hand at Headquarters
End of FY
44,068
39,967
34,309
34,218
Accumulated at Records
Center at End of FY
5,596
8,191
12,444
15,299
Total Records on Hand
49,664
48,158
46,753
49,517
Attachment:
Graph - CS Records Disposition Activities
(Cubic Feet)
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RECD 4MENDiATIONS
The missing element in the CS records system, in point of both
system and procedure, is that of functional (or staff) participation.
The acceptance of a functional responsibility clearly involves respon-
sibility to keep records on those subjects unique to the function from
which doctrine and operational direction derive. A logical derivative
of this responsibility is that of codifying experience for the benefit
of the operators or somehow seeing to it that the function is imple-
mented at the highest possible level of standardization including the
use and disposition of the functional record. Finally, of course, in
their own interests as well as that of overall efficiency, the func-
tional units should cooperate in preparing and implementing procedures
in order to service both action and functional interests in the same
documents. Virtually none of this happens in the Clandestine Services.
The "official CS records system" contemplates the possibLity but does
not enforce it with the result that two-thirds of our records are
uncontrolled and "unofficial" and, what is worse, their proper role
and purpose is undefined.
The foregoing report has ignored many accomplishments in the
records field in order to emphasize weaknesses and depict the conse-
quences of the present approach to the problems posed by six miles
of headquarters records. This approach is limited in both scope and
depth, and the remedy, if such is desired in the light of this report,
is to increase the scope and intensify the effect of the system by
taking in, so to speak, administrative paper, reports paper, miscel-
laneous operational paper and, above all, staff paper as such. This
can be done without disturbing our present concentration on personality
data but it must be accomplished by the elements which are charged with
the primary responsibility for the ::functions and purposes of the paper
which is omitted from present controls.
This then is the purpose of the following recommendations; to
refine and increase the effectiveness of the present "official system"
and to systematize the CS approach to the remainder of its records.
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RECOMMENDATION #1 (see Tab IV,, paragraph 3)
Require that appropriate functional units prepare and publish
instructions pertaining to the reporting, filing, maintenance, use,
and disposition of the record on:
PI Projects 10 Projects
Liaison Projects Operational Support Projects
CI Projects Commercial Enterprise Projects
CA Projects
RECOMMMTION #2
Require each staff to initiate and participate in the develop-
ment and implementation of operating instructions covering the file
systems and paper processing related to their functional interests.
(E.G., operational reporting and operating instructions for making
name traces, processing covert approvals, clearances, and name
checks.)
RECON!4ENDATION #3 (see Tab III, paragraph 2 and Tab IV, paragraph 4)
Assign responsibility for managing the present CS official file
system to Chief, RID. RID responsibility at present is confined to
the workings of RID itself and does not extend to the participation
of divisions and staffs in the official records system. Logically,
from the standpoint of responsibility and as a practical matter con-
sidering who is best fitted to do the work, RID should pick up where
the Records Handbook leaves off and publish all the procedures
required to fill the need for guidance in this area.
RECOMMENDATION #4+ (see Tab IV, paragraph 2)
Instruct the staffs to participate in conceiving and developing
a revised CS subject filing system to provide for inclusion of manage-
ment papers and to place responsibility for classifying, maintenance,
and disposition at the point of use. Specific action to be taken as
follows:
a. Charge each staff with developtent of the appro-
priate file subject headings to cover paper related to
their functional areas of responsibility. (E.G., Foreign
Intelligence and Security Services, and the Illegal
Apparat of the Communist Party.)
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b. Assign to DDP/RMO the task of collaborating in and
coordinating the staff effort with the end objective of pro-
ducing an official CS subject file handbook in which the
classification plan will permit expansion or contraction to
meet the varying volume and subject requirements of the
several components requiring files on the same subject.
c. Transfer responsibility for subject classification
and filing this material from RID to the action component.
RECOITDATION #5 (see Tab V, paragraph 2)
Authorize the DDP/RMO to develop and issue a standard mail con-
trol procedure for adeption to the individual requirements of the
respective components. This procedure will establish the minimum
records needed to meet both security and internal requirements for
logging, control, and reference requirements.
RECOI NDATIO1 #6
Require Chief, FT (through Chief, to develop the cri-
teria and instructions for the establis e , aintenance, and dis-
position of Reports Officer card, reference,, subject, and chrono
files.
RECOMNENDTION #7 (see Tab V, paragraph 3)
Require Chief, CI to establish and publish criteria for the
maintenance of operational card indices outside of RID, covering
card content, format, and disposition.
RECOINDATION #8 (see Tab III0 paragraph 4+)
Require SSA/DDS, with the assistance of the Agency Records
Management Staff, to develop a program for installation of a uni-
form subject file system throughout the CS Support Staffs and to
develop and administer an administrative records control schedule
for all CS administrative paper.
RECOIWDATION #9
Authorize the DDP/RMO to undertake a review of the entire
crypto-pseudo process and establish a standard procedure for assign-
ment, file maintenance, and control.
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It is realized that these recommendations, in the aggregate at
least, go considerably beyond the normal province of records manage-
ment. This is inevitable because the records situation of a given
organization is a consequence of its management attributes, and
because paperwork systems are not a thing apart. Soy too., with
solutions. If responsible officials will determine the role which
they want their records to play., records management can so arrange
and then revert to its proper and pedestrian place.
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