IAC POLICY ON APPROVAL OF APPENDICIES TO NIE'S

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP79R00904A000100040025-2
• Release Decision: RIPPUB
• Original Classification: C
• Document Page Count: 10
• Document Creation Date: December 16, 2016
• Document Release Date: August 15, 2005
• Sequence Number: 25
• Publication Date: October 1, 1953
• Content Type: MF

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CONFIDENTIAL
CENTRAL INTELLIGENCE AGENCY
OFFICE OF NATIONAL ESTE
14124CRANDirl FOR THE
Di
INCE .ADTIBCRY CCM
1 October 1953
SUBJECT : IAC Paley on Approval of Appendioes to NIE's
REFERENCE: IA041.119 el Septetber 1953) as amended IA0,4120
(8 September 1953) '
1. Pureuamt to IAC action an 1 September, the Board of
National Estimaten has considered ,general polio; with respect
to appendices to national intelligence estimates.
2. The findings of the Board are incorporated in the
attached Staff Study*.
3. The Board recoormendss
A. That IAC action of 4 September 1952 relating to
appendices (IA04441 Revised, Item 2) be rescinded.
b. That the IAC instruct the Board and the IAC rep.
resentativos to hold the use of appendices and
their length to a minintra consistent with the adequate
presentation of estimates.
2. That such appendices as are found to be necessary
be sated upon by the IAC in the same manner as amy
other part of the estimate.
44 This matter has been placed on the agenda of the IAC
mooting eoheduled for 1045 Tuesday, 6 October,
Distribution "Au
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STAFF STUDY
IAC POLICY REGARDING APPROVAL OF APPENDICES'
TO NATIONAL INTELLIGCNCE ESTINATES
THE PROBLUI
1 October 1953
To recommend a policy regarding IAC approval of the content
of appendices to national intelligence estimates
-FACTS BLARING OP Tee PROBLEM
1. On various ceeeeiene and with various degrees of formality
the NSC Planning Board has expreened ite.desire to be supplied with
IAC-coordinated supporting data of the sort which has beerepresented
in the appendices to nationel intelligence estimates,
2, Between 11 November 1950 and 4 September 1952 the IAC
approved twenty-one estimates containing appendioes (sometimes
called enclosurev annex? or tab)e In throe eases these appendices
consisted exclusively of quoted documentse; in aie caseso of tabular
data only. In twelve cases they included additional text supple.
menting the discussion within the estimate proper. (See Annexe)
.3? At the IeC meeting on 4 September 1952 there WM objection
to acting on a lengthy appendix (22 pages in dittov 8 pages in
print) attached to NIL-690 1Probable Developments in North Africa."
This materials, once part of the discussion in NI73-65 had been
relegated to an appendix as not essential to the diecuseion, but
nevertheless of use to the WSC Staff as backgroued information. The
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content of the appendix had been cleared with the IAC mpreseut,atives:,
4. IAC41.81 (Revised) records the action of the IAC x: ti
matter as follows$
Approved ENIE17 as submitted s the ape dices to be
disseminated with the estimate, With respect to the
general questiareof issuing appendices to accompami Naos
the Deputy Director (Intelligence) of CIA in consultation
with the agencies will determine whether an appendix hall
accompany a National Estimate, it being understood that
such appendices would consist of background informatAen
submitted by the agencies in. developing the estimate. Al-
though formal IAC concurrence will not be given appendices
they should be screened by the agencies and any serious
disagreement taken into aecounto
Actusuy the draft appendix to NI-69 wee published eapa-
rateIy An N. format, but labeled as a Eemorandum for the NSC
Senior Staffs with the notation that it was prepared by CIA in
consultation with the IAG agencies.
6. Despite the decision recorded in IACaK-81 (Revised) the
IACs sines 4 September 19520 has approved appendices in seven
national intelligence estimates, (See Annex() In five cases these
appendices consisted of tabular data only? The eerliest ease0
however a- the Appendices to 4IE-64? Part Is approved 26 November
1952 --Involved the informal, but personals action of the TAG
members on 75 pages of ditto text (32 pages in print), The appen-
dices to SE-38 (38 pages in ditto, 12 in print) were fornmaAy
approved at an IAC meeting, 26 May 1951,
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7? .At the IAC meeting an 2 September 1953 there was objection
to IAC approval of the appendices to NIE-9041 with reference to the
policy adopted on L. September 1952, It was agreed: (a) to refer
these appendices back to the IAC repreeentatives for review "with
the objective of IAC approval"; (b) to reconsider general policy
with respect to appendices in the near futurev
DISCUSSION
8? Appendices to national intelligence estimates ore justi-
fiable as an editorial device for eegregating basic data which is
needed' to support or amplify the discussion., but which would unduly
encumber the discussion. if ineorporated in it, It may be desirable
to reduce this practiee to a minim% but experience has shorn that
there certainly will be future occasions when it will be necessary
or desirable to resort to it, Coneequontly there should be.no rigid
rule against the ues of appendices, At the same time it would be
proper to require that their use be clearly warranted in each cameo
90 A recurring need for the use of appendices can be antici-
pated in the projected seriee of annual estinetes of Soviet capebilitiee of the NIE-611/NIE-90 type0 The basic estimates of Soviet
strengths and weaknesses which constitute the substance of the
appendices to NIE-64 and NIE-90 are an integral part of the' subject,,
essential to its dieeussione Moreover, as establishedin these
OUNFIDESTIAL
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documents9 they under/4' most other national, intelligence esttnateL,
Consequently they require the stamp of Ifie approval and cannot be
dismissed as "working papers,"
10,, At the sane time it should bc noted that the 20 August draft
appendices to 14:03-90 (99 pages in ditto, including tables) were 1f1Ore
voluminous than the Bosrd considers to be noce6zary or desirable,,
This bulk was at least- in part the result of insistema by the 3everal
LIG agenoica upon the inclusion. of additional data, An agreeiTopnt
that such appendime should be more selective in corrten? and nom
,ti?rsccinot in presenUtton would /be weleorzed by the 13oard?
li,? The 310.3 aation of 4 !::fr'eptember 1952 appaars to have boen
based In part on...an amllogy betwen SCA,C.1 action in approldng mit:tonal ?
estimatez.,; and a al3S rule that JUST approval of the r3comendations
in a given paper is not to be taken toirpiy JOS approval of tiltc,
supporting argument, This role i6 necessary to prevent .5cmte obacure
passage being cited in another context as binding 'becawie JCZ-approvedr,
Tht. analomr is imperfeeti, however,; inasmuch as JC3 pape.rs are action
papers in which the recommendations alone are operative, Nett-N1 apc.r(riMdp
wtterePs the fumtion of nationai intelliErnce estimatee is to,- Inform
mi evory yert the paper serves that purpose tho 44i)r-endices.,,
12? -it is arg--,d (114-41-119) that IAC approval of baL371,11A,.11
111.1-.a those found in the apyendices to NIL-64. and NIL-90 wou.,1d. hincier
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or preclude Departmental modification of such estimates for
Departmental Purposes on the basis of new evidence. This objection
presupposes unwarranted bureaucratic and hierarchical rigidity. No
estimate can ever be more binding than an established judgment .
as or a cereaxaluate? teetiayS eubjeat to modifidation
by new evidence or even by well-founded reconsideration of old
evidence. Frequent revision of basic data is undesirable, but
justifiable revision of such data by the Competent and responsible
Departmental agency should not be precluded by the existence of an
NIB. If the departure from a published NIL is a eatterof precision
in detail, not seriously affecting the NIE9s conclusions, no prior
or subsequent IAC action should be necessary pending the scheduled
revision of the NIL. If it is a matter of greater import, a revision
of the NIL5 or At least the publication of a slant, would seem to be
indicated,
13, It is also argued that, insofar as concerns military data,
NIL appeedices are unnecessary to meet the requirements of the NSC
Plannine Board Inasmuch as the content of corresponding JIC estimates
Is available to the Planning Board through its ,XS adviser, As
S practical matter, however, J/0 estimates arO'not made directly
available to t!le NSC Planning Board. The JCS adviier, as an
aceomsneation? might indeed obtain frocithe Joint Staff answers
to speed:tie intelligence wariee, but such a proeedtre would be
inconvenient for all at:monied arid would not sem the purpose
of making the Planning Board generally veil informed
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In slush mattars. In point of Talmage, moreover, the function
of the JCS adviser is to provide operational information and policy
adrift fromtha 308 point of view, not intelligence. For the natio-
faction of its intelligetoe requiramenta the Planning Board looks
to its designated intelligence adviser, the Deputy DirectOr/lntel-
Uganda, OIL, and normany empeets its Intelligence documentation
to consist or integrated national estimates that is, /AC-approved
estimates, not JIG estimates or Etpartmantal "vorking papsren.
24. The LISC Planning Board values the supporting data cot..
tained In BlE appendioas (a) as auhatantiation for and further at.
planation of the ganeralized aromas lathe discussion, (S) for
the better general information of its mothers, (c) as a general
body of reference data conveniettly available use in Planning
Board discussions. The llannlog Board *considers that thin data,
to be of value, should be as yell coordinated and authoritative as
any other part of the eatimata. Intelligenoe data deemed aart4y
of BSC Planning Board oonsidaratiaa should he worthy of IAC con-
sideration and approval.
154 IAC coordination or much biaxial estimates as are oontainod
in the appendices to NIE-64 and EIE.90 is of important valme to all
cow:yarned, both produoars api reaipients? as enuring duaponsidera-
tion of political, ecotomlo mad ecientifio faotore in primarily
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military estimates, and vice-vera, A periodic IAC review of these
matters, as envisaged in the NIEe6101E-90 series, is essential to
the disoharge of the statutory responsibility of the DCI for coordi-
nation* The DCI and the IAG cannot acquit themselves of this
responsbility by the publication of unapproved appendices as *working
papers**
3.60 As a practical matters it is likely that reeponeibilitY for
such *working papers* would be attributed to the I40 in egy case, no
matter what rules the IAC might adopt? The typical recipient would
assume that supporting data related to a national intelligence estimate
and published. by CIA bore e4 lay inprematur, regardless of the ruble printed
on the cover* The IAC can delegate its authority to the nworking level*
with respect to appendices, but it cannot escape eesponaibi1ity0
RECOMMENDATIONS
170 The Board of National Estimates reeommendst
& That 1A0 action of 4 September 1932 relative to appendices
(IAC44,81 Beliolsedp item 4) be resoinded.
Do That the In instruct the Board and the IAG representa4res
to hold the use of appendloes and their length to a ninkisa
consistent with the adequate presentation of estimates.
c? That such appendices as are found to be necessary be
acted upon by the IAC in the same manner as any other part
of the estimate?
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CONFIDENIXAL
CENT RAL INTELLIGENCE AGENCY
OFFICE OF NATIONAL =MATES
2 October 1953
MEMORANDUM FOR THE INTELLIGENCE ADVISORY COMMITTEE
Please insert the attached Annex to your copy of
Memorandum for the IAC, "IAC Policy on Approval of Appen-
dices to ME's", dated 1 October 1953.
Distribution "A"
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0016;IDENIAL
MEN
PUBLISHED ESTIMATES CONAINIIIG
LIC-AP' ? Dit APEENDICFS
Date
latiebild
BOW.
73?' ?f PP. in
t2g. 11132.
tiPe of
?SM.
1.5 !Welker
1950
NIE-3
10
13
text
21 November
1950
VIE-7
5
10
text
8 January
1951
NIE-34
4.
4
tablas only
10 hammy
1951
132-18
5
7
text
22 Amery
1953.
N13-21
3
2
documentary
10 April
1951
1'IE-27
6
3
text
20 April
1951
NIE-19
6
1
dootsrentary
22)y
1951,
$E-5
8
5
text
6 August
1951
SE-9
12
2
text
7 August
1951
!IE-35
5
1
tables only
14 September
1951
NIE-41
6
1
tablas only
7 Noveskar
1951
1IE-33
8
3
tables only
22 December
1951
SE:.20
3
5
text
26 March
1952
SE-24
3
4
text
1 April
1952
1IE..27/2.
7
4
text
28 April
1952
SE-25
3
1
tables only
30 April
1952
111E-60
4
11
text
29!W
1952
IE-52
11
7
text
5 Jrcte
1952
SE-27
14
4
text
30 Ju3y
1952
NIE-55/1
8
4
tables only
10 September
1952
mi-58
5
4
documentary
22 November
1952
N/E-64 (1)
8
26 November
1952
Appendices
32
text
11. December
1952
NIE-21/1
4
1
tables only'
3 April
1953
riE-so
9
4
tables only
16 April
1953
1413-59
3D
3
tables only
24 April
1953
SE-38
7
28 My
1953
WIE-87
9
6
tables only
4 Zane
1953
NIE-91
8
4
tables only
32 Awe
1953
SE-38 App,
12
text
g
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