DECLASSIFICATION OF SOME OF YOUR MURPHY COMMISSION TESTIMONY

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80M01133A001000060007-5
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 22
• Document Creation Date: December 14, 2016
• Document Release Date: April 1, 2003
• Sequence Number: 7
• Publication Date: February 19, 1974
• Content Type: MF

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I,IC 14-0959
It Faber 1974
N RANWM FOR; Director of Central Intelligence
Declassification of Some of Your
Murphy Commission Testimony
Subsequent to your appearance before the Murphy Commission
,
Novaker, the Co mission staff requested that we review the
transcript of your remarks and differentiate for them the classified
and unclassified portions. For your information, they have taken
this same approach with most of the witnesses who have made refer-
ence to classified information in their testimony.
2. The transcript which appears in the attached notebook has
been reviewed by the DDI, the DDO, the DDSJT, the General Counsel,
and by me. We have underlined in red all portions which are classi-
fied, except for a few points which are now treated within the
ency classified but which you may now wish to treat as un-
Isified. The particular portions to which I draw Your attention
a. On page 9, the first full paragraph beginning
with 'That was a way of expressing the charge of conducting
espionage..." Is there today a good reason to deny that
the US has a mechanism for directing the conduct of espionage?
b. On page 14, the first full nararranh on
25X1A
c. On page 57, beginning in the first paragraph with
'This, of course, is why we got into the war in Laos..." and
carrying through the middle of page 58; then picking up again
after certain deletions on page 58 with the paragraph "when
the cease fire was arranged last January," and carrying
to Mr. A y's first question on page 59. This section
describes how CIA got into the Laos war, etc. Can some or
all of this go into the open record to begin to set matters
straight? Z. {
Dept of State review(s) completed.
NSC Referral Not Required
pp((
E JMPOET CC BY. A.....1[..
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d. On 101, the paragraph about mid-page which
begins " What a in 1959 was that a General in the
Ceebodian A=y..." through p ge 102 as marked. This is
the story of why Sihanouk this we tried to overthrow
him in 1959, and it seems that this would be a good story
to have out in the open.
3. The Com fission does not now intend to publish a sanitized
transcript,, although they may want to publish an unclassified
avnary of your testimony. This, they will need guidance from us
about which portions of your briefing may use. After I re-
c eive )n w guidance on tese few outst!heing points, I will mark
their copy of the transcript to match yours.
4. For your information, the Cam ission is developing a
up study plan which the staffers will pursue. I
e area on which they would like a clearer fix is covert
re nme -A that you sign the attached letter to
Ambassador Murphy, transmitting the sanitized text. I will
Carry it to the Coanissic when I go to mark their transcript.
Da/rc/ACS
Attacbmt
as stated
DCI/IC/CS 19 Feb 74
Distribution:
Orig. - addressee
1 - DDCI
t-ER
IC Registry
1 - CS subject (4) 3
1 - CS chrono
GEF chrono
Lola 5 o t.l4
25X1A
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 Approved For Release 2003/04/25: CIA-RDP80M01133A001000060007-EOG/FP D3
COMMISSION ON THE ORGANIZATION OF THE GOVERNMENT
FOR THE CONDUCT OF FOREIGN POLICY
2025 M STREET, N.W.
WASHINGTON, D.C. 20506
THE COMMISSION'S STUDIES PROGRAM
The document attached describes the Study Program
authorized by the Commission on March 25, 1974.
That Program should evolve as the Commission's
deliberations and the research itself suggest new
issues or revised priorities. Pending such revisions,
however, the studies to be undertaken by the Commission
are those outlined here.
Petek L. Szanton
Research Director
March 26, 19t14
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COMMISSION ON THE ORGANIZATION OF THE GOVERNMENT
FOR THE CONDUCT OF FOREIGN POLIC'i
2025 M STREET, N.W.
WASHINGTON, D.C. 20506
March 26, 1971
THE COMMISSION'S STUDIES PROGRAM
The purpose of the Commission on the Organization of
the Government for the Conduct of Foreign Policy, as set
forth in its authorizing legislation, is "to submit findings
and recommendations to provide a more effective system for
the formulation and implementation of the nation's foreign
policy." The statute makes plain that those recommendations
should apply not only to the full range of Executive Branch
agencies concerned with foreign affairs, but to means of
improving the ability of the Congress to carry out its own
responsibilities in foreign affairs.
The Commission is responding to that mandate in several
ways. It is taking testimony from current and former
executives of agencies concerned with foreign policy, and
from critics and observers of those agencies. It has under-
taken a systematic canvassing of the attitudes and desires
of members of Congress and will pursue these in future
hearings.
It may sponsor a number of conferences and seminars.
Finally, it is commissionincx a number of special studies.
This p.a.per ontlinPs the scope, content and timing of those
studies.
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Several introductory comments may be useful.
First, the purpose of all of the Commission's activi-
ties is to make clear how foreign policymaking might be
improved through changes in organization; it is not to examine
the substance of policy. Accordingly, the purpose of the
research program is to provide the Commission with a factual
basis for determining where current organizational perfor-
mance -- especially within the Executive Branch -- is most
in need of improvement; what kinds of organization change
seem likely to prove most beneficial; and how such changes
might. effectively be introduced.
Second, in this document as in the Commission's work
generally, the words "organization," "foreign," and
"policy" are all used broadly. "Organization" refers to
the procedures, personnel and resources applied to the
determination and management of policy, as well as to relative
responsibilities of the various governmental entities
involved "Foreign" policy is understood to involve the
whole range of issues which may substantially affect the
relation of the U.S. to other countries, whether they also
have major domestic implications or not. And "policy" is
taken to mean that range of functions which includes analysis
of the external world and of U.S. interests with respect to
it; consideration of alternative courses of action, deter-
mination of actions to be taken, carrying out of those
actions, and assessment of the consequences.
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Third, the Commission has no interest in original
research for its own sake. On many of the subjects
discussed below, substantial work has already been done.
The Commission intends to utilize such work and to perform
only such original research as may be necessary to address
.its specific concerns.
THE STUDIES
PHASE I: PREPARATORY PAPERS
The studies will proceed in three partially overlapping
phases. The first, a short preparatory stage which began
in December 1973, involves the preparation of a set of brief
papers intended to give the subsequent studies a common base
and focus. None of these papers will be taken as final state-
ments; those which deal with problems to be addressed in
the Commission's final report will be revised in the light
of the conclusions of later studies. Most of the papers
of Phase I will be prepared by the Commission's own staff,
and completed by April 1974. Phase I studies include the
following:
A. The Utility and Limits of an Organizational Approach
It is sometimes asserted that what matters in policy-
making is the people involved, -not the organizational frame-
work. The more plausible form of this assertion is that,
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(Phase I)
while organizational setting1does affect the information
received by decisionmakers, the alternatives presented to
them, the values they take as paramount and the consti-
tuencies, to which they respond, organizations, nonetheless,
shou.ld'be designed to fit the operating styles of their key
individuals, and not vice versa.
Similarly, the argument is made that organizations cannot
be designed without reference to the dominant concerns of
policy. The management of U.S. interactions with great-power
antagonists, for example, is probably best entrusted to
organizational arrangements quite different than those best
adapted to matching the economies of the non-
communist states, or than those appropriate to addressing
problems of world population, food, and natural resources.
How, then, can this Commission realistically fulfill
its charter? What kinds and degrees of organizational
change can it realistically propose in the absence of know-
ledge about either future U.S. political leadership or
of the dominant policy concerns in the period following
the Commission's report? This study will address that issue.
It will attempt to distinguish types of organizational
problems for which a single recommendation may be appropriate
from others where alternative proposals may be more useful,
and still others as to which it-may be appropriate only to
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(Phase I) 5
specify the criteria which any organizational arrangement
should meet. It will also explore the extent to which
various components of a foreign-policymaking system might
be designed asymmetrically, with differing organizations
or levels of organization oriented toward different major
concerns.
B. The Problems Commonly Cited
The organizations and personnel engaged in the conduct.
of U.S. foreign policy-have been often analyzed and many
asserted adequacies identified. To provide a rough check-
list of issues to be considered in later studies, this
paper will briefly review the major criticisms now most
commonly made of performance in particular substantive
areas (e.g., economic, cultural); functions (planning,
implementation, etc.).; resources (budgets, personnel);
and the like.
C. The Future Environment
To supplement the analysis of criticisms now made of
foreign affairs organization, this paper will identify and
discuss plausible current predictions about 'the environment
in which U.S. foreign policy will operate over the next
decade. It will not seek to predict a particular future,
but rather to uggest the major-alternative future environ-
ments which important current developments may foreshadow,
 (Phase I)
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the kinds of policy problems which may prove paramount in
such environments, and the particular functions, resources,
and organizational arrangements which might be most severely
taxed in such circumstances.,
D. Lessons. of Prior Studies
This paper will summarize the issues addressed and the
recommendations made in each of the major studies on foreign
affairs organization conducted since 1945. It will also
analyze the comparative impact of those studies and seek to
identify the various factors intellectual, political,
bureaucratic --.which determined their degrees of success.
Its purpose is threefold: to supplement study I.B, above,
by identifying prior kinds of dissatisfaction with the
organization of the government with the conduct of foreign
policy; to prepare for study II.A, below, by identifying
major previous changes in organization for the-conduct of
foreign policy; and to increase understanding of the ways
in which'the present Commission might conduct its activities
and cast its report so as to enlarge the chances of its
having a useful effect.
E. Characteristics of an Effective Foreign Policy System
The mandate of the Commission, to recommend "a more
effective system" for the conduct of the nation's foreign
policy, does not specify the characteristics which such a
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system should possess. This paper will provide a first
attempt to identify those characteristics.* Its purpose
is to establish a set of criteria against which the per-
formance of both current organizational forms and of
alternatives to them can be measured.
F. Alternative Models of Organization
To help focus the conclusions of later studies, this
paper will detail several alternative models of organiza-
tion of the Executive Branch for the conduct of foreign
policy,** together with several models of Congressional
organization. Later studies will consider how each of
these alternative structures might perform in dealing
with the particular policy issues they address, and explore
the possible relation of Executive and Congressional models.
Subsequent studies will also be free, however, to specify
such other models or elements of models as they deem
useful.
*Examples: That such a system provide a coherent
conception of U.S. objectives; that it present decisionmakers
with :realistic alternatives; that it ensure that "policy"
actually contrlls operations, etc.
**Examples. a "Strong-State" system; White House-Centered;
Decentralized.
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(Phase I) 8
G. Comparable Patterns of Other Governments
This study will-briefly examine aspects of the
organization for the conduct of foreign policy of a limited
number of foreign governments. Attention will be directed
only to apparently successful arrangements which seem
applicable to U.S. conditions. Examples are the British
personnel and commercial functions reformed as a result
of the Plowden and Duncan reports, the recently reorganized
Foreign Office of the Federal Republic of Germany, and
the French administration of overseas cultural and economic
assistance programs.
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PHASE II: SUBSTANTIVE STUDIES
Phase II, embodying the major portion of the Commis-
sion's research, will begin in April 1974 and be substan-
tially completed by December 1974. Some Phase II studies
will, be performed by the Commission's staff, others by
consulting scholars. The studies are outlined tentatively
here; full specification of their coverage, approach and
level of detail awaits completion of discussions with their
prospective authors.
A. The Effectiveness of Organizational Change
There exists no formula which accurately predicts
the full effects of changes in complex organizations.
One reason why the proposals made in many prior studies
had little impact is that reasonable persons could
reasonably disagree as to what their actual consequences
would be. In order to improve the ability of this
Commission to make recommendations whose real impact can
be more confidently predicted, several studies of the
costs and benefits of actual recent changes in organization
for foreign-policy will be undertaken. Examples of such
changes are the evolution of the NSC from 1960-1974; the
transformations of the foreign aid program, 1949-1962;
changes in the'State Department associated with Under
Secretary Crockett; creation of the CIEP. To each of these
cases,, three main questions would be posed:
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What benefits were anticipated from these changes?
. What benefits -- and wha+
experienced?
What general lessons for organizational change
can be derived?
B. The Adequacy of Current Organization
The Commission must obviously attempt to assess the
adequacy of current organizational arrangements for the
conduct of foreign policy. It cannot conduct research on
all such organizational arrangements, however. To supple-
ment other evidence concerning the manner and effectiveness
with which the government manages the wide variety of
foreign policy problems, the research program expects to
examine in detail the adequacy of current organizational
arrangement with respect to four or five foreign policy
problems of the highest priority. The purpose of each
such study is to determine whether current organiza-
tional forms, jurisdictional lines,, staffing patterns and
operating procedures are fully effective, and to suggest
whether specific alternative arrangements (drawing. especially
on the models outlined in paper I.F) might improve matters.
The studies in each such area will proceed by examining,
as nearly as possible, all major decisions made by the U.S.
Government of a particular kind over roughly the past
five years. This procedure will present for,review a
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history of policymaking which will include cases of crises
as well as routine decisionmaking, issues resolved at
departmental as well as Presidential levels, and successes
as well as failures. The decisions which, in retrospect,
had unfortunate or unexpected results will be compared
with those whose consequences were more favorable or more
clearly foreseen. These comparisons will seek to illuminate
the causes of inadequate performance and to identify both
the organizations and the functions (collection of informa--
tion, development of alternative courses, etc.) which
appeared most in need of strengthening.
The particular foreign policy problems tentatively
chosen for such intensive reviews are the following:
1. The Interaction of U.S. and Foreign Economies. In
addition to such issues as the U.S. textile dispute
with Japan, 1969-74; preparation of the 1973 trade
bill; and U.S. actions respecting the problems of
the international monetary system, attention will
be given to decisions previously thought of as
being domestic but which have a major potential or
actual impact on foreign relations (e.g., U.S. crop
acreage allotment decisions and their relation to
world grain prices).
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2. National Security Issues. This study will seek to
assess the adequacy of current arrangements for
balancing the full range of relevant considerations --
foreign policy implications, economic and budgetary
impact as well as national security requirements --
in decisionmaking with respect to defense budgets,
weapons acquisition, base requirements, troop deploy-
ment, strategic doctrine, and the preparation of
positions concerning international arms limitations.
3. Coordination in Complex Settings. This study will.
examine the capacity of the U.S. to maintain coordi-
nation between a large number of policies impinging
on a single foreign state, or region. Tt will both
survey the totality of U.S. foreign policy activity
with respect to a single region or small set of
countries (e.g., the Federal Republic of Germany,
or India and Pakistan) over roughly a five-year
period, and examine in detail a case in which the
combined effect of U.S. policies had important
unintended consequences (e.g., pressure on the
Erhard regime just before its fall).
4. Multilateral and Global Issues. This study will
review recent U.S. actions with respect to the diverse
but increasingly important issues which are inherently
multilateral or global in scope. Often, they present
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(Phase II) 13
both domestic and foreign policy implications,
cross traditional jurisdictional lines, and involve
important technical components. Such issues include
the oversight of multinational corporations; deter-
mination of seabed policy; and actions respecting
world environment, population, and food production.
C. Minimizing Irrationality
Recent work in several disciplines provides new insight
into the tendencies of personal and bureaucratic factors
(and in the case of crises, physiological and additional
psychic factors)' to distort the judgement of decisionmakers.
Drawing on recent work in the political, behavioral and
psychological sciences, this study would address two
questions: (1) to what extent are current organizational,
procedural and staff arrangements unnecessarily vulnerable
to such pressures; (2) what alternative arrangements might
either shield decisionmakers from such pressures or open
their deliberations to others less likely to be affected by
them: Answers would be sought as to arrangements both for
response to crises, and for more routine decisionmaking.
D. 'ihe Conduct of Routine Relations
The adequacy of current organizational arrangements to
manage major decisions concerning priority issues requires
the closest attention; accordingly, that problem forms the
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focus of much of this study program -- especially in the
various studies grouped under II.B. But most of the time,
most of the resources devoted by the U.S. to foreign
affairs are engaged in far more routine activities, and
these.quite substantially shape U.S. foreign relations,
especially with nations and regions of secondary strategic
or economic importance. This study is intended to assess
the relevance and utility of these more routine activities.
It will also examine the degree to which U.S. "policy" with
respect to a lower-priority region actually governs the
day-by-day handling of commodity agreements, expropriation
problems, fishing disputes, tariff and trade questions, and
the like, and the role of private U.S. citizens and organi-
zations in U.S. relations with the countries selected.
The study will address those questions through a close
examination of U.S. relations with several Latin American
nations over the past 6 or 8 years.
E. Resources for Foreign Affairs
Beginning in the summer of 1974, after all other
Phase II studies are well underway, this analysis will
seek to draw from their findings indications of ways in
which the personnel systems upon which U.S. foreign rela-
tions are founded and the budgets which support the conduct
of those relations might be adapted more effectively to
their purposes. The study will be divided into two parts,
approximately as follows:
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1. Personnel. This substudy will review the functions
overseas representatives and their home agencies
actually perform, and those which prior studies
suggest as most important and least adequately
performed. Conclusions will be derived concerning
the skills, perspectives, and incentives a foreign
affairs personnel system should provide, and
changes in recruitment, training, career-paths or
organizational structure which might most effectively
produce them.
2.. Budgets and Resource Management. This study will
investigate how policymaking and resource utilization
might be better meshed. Supplementary questions
include how levels of support for given functional
activities might be better developed in an overall
context, and whether some form of more coordinated
budgetary process in either the Executive Branch
and/or the Congress might be helpful.
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PHASE III: INTEGRATION AND PREPARATION OF CONCLUSIONS
The contents of this phase, to begin in September 1974
and continue until the completion of the Commission's final
report inJune 1975, cannot now be fully specified, but
three.main tasks will be performed:
1. The lessons learned from the studies, the
Congressional interviews, the conferences,
hearings, and other Commission activities will
be drawn together and recast into categories
appropriate for general conclusions.. -
2. Supplementary studies, additional conferences,
hearings, and other activities will be undertaken
to prepare recommendations responsive to those
conclusions.
3. Impediments to the implementation of those
recommendations will be assessed; means of
addressing them explored, and modifications in
the recommendations considered.
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July 10,1974
Suggested Modification of the
Substance in Page 2 and 3 of the Harris Proposal
(1) An Overview of Intelligence in the Conduct of Foreign
Policy -- William J. Barnds, author
A general paper that would address in broad terms all of
the central issues: the role of different types of intelligence
in the formulation and execution of foreign policy in the
host-Cold War era; organizational issues involvin
g
1-he ;n+-o"I1;-
gence community; competition and coordination in intelligence
analysis; the role of the Director of Central Intelligence
(both in the allocation of missions and resources and in the
policymaking process); and a look at intelligence from the
standpoint of different policymakers. The paper would discuss
the roles of the Agency heads, the Intelligence Community
staff,
and
the NSC Intelligence Committee.` It would also
stress
the
sources of dissatisfaction with intelligence, and
issues
of
organizational or functional reform which are
implied
by
that dissatisfaction, and the adequacy of guidance
and feedback to the 1i'itc-7 1 igence, :umr lint i-y from ,l~,nlicymakc s
The advantages and disadvantages of various organizational
and piocedural approaches would be outlined.
(2) Intelligence and Policymaking -- William J. Barnds, author
This paper would deal in considerable detail with the inter-
action of intelligence organizations and officials with those
institutions and individuals charged with policymaking
responsibilities. It would consider different ways that
intelligence analysis and'production could be done in current
intelligence, intelligence estimates, and basic intelligence
research. It would also consider the importance of various
kinds of information -- collected by various means -- in the
intelligence process, and the role intelligence officers
could play in guiding different types of collectors. The
problems of securing intelligence relevant to the needs of
policymakers would be surveyed, as would the importance of
maintaining a sense of detachment and the ability to purvey
unpleasant views. This paper would concentrate on describing
how things actually are done rather than on any textbook
formula, but would also discuss opportunities for improving
relations between intelligence officials and policymakers --
either through organizational changes or by institutionalizing
certain practices.
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3) Innovation in the Producti
on of Itll
nei ence -
.0,01,,111-Linton Kelley, author ._ '
~l This paper would f 01"L ''` .~V ,:t~~c
ocus on new ways to prepare and
present finished intelligence analysis (e.g.,
e_
oral
~,veASentat ~r ions, better inputs into NSS
M
deliberations, and
tative analysis where applicable It
quanti-
t
echnique i woulddd
aress new
sn forecastina, and
.. ~~+i+a41Ve met;tiociology
but woul - ""`ri111~ as well as
those topics which are partticularlyy susceptiblettobetween
quantitative analysis and th
ose whiht
c are no. Kelley will
also address organizational implicntions of altered relationshi s
between forecasters and decision-makers. In add;t--__ p
paper TArn~~ l A a.c
i
V1 e
ssue or evaluation of fi v+ic
intelligence analysis (or the lack of it) with nished
lye intelligence community
in the
and consi
er c s
~tf of Judging the usefulness of intelligenceproductsmtohods
po:Licymakers.
ond
14'~t t?' -.
uU U an 1, 1 Mana ement of For
it Intel lj.~^ence t+:i '57; ein
e
Vi
m
c Harr
. is, author
lr
try L This paper would discuss the constitutional and statutory
base for foreign intelligence, with ex
Nati
li
cit ref
onal Secit e
erence to the
ury Act of 1
947, CIA ct of 1949, he
full range of National SecuritytCouncilAIntelligenceaDirect
The paper would address: the authority of the DCI and the et IC
l
staff; the role of the President and Congress in delegating
authority to collect intelligence information; the adequacy
of thepresent authority for the conduct of covert operations,
by the CIA and the DoD; the authority to release information
of commercial value; the authority to collect information within the U.S., with or without a,court order; the authorit
to collect and disseminate information on international y
organizations and multinational corporations;
the exchange information with foreign and aute hority to
authority to protect intelligence sources governments; ~ methods from
unauthorized disclosure.
approaches and discuss theThe paper would suggest alternative
statutory reforms. pros and cons of recommending
, & a ~ 1, 2: ~ L - Ifo ~ V L GU 1 G//':t
~, a c L v i.,,; /,, ~, /
y
_
,.. PL
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(5) Issues in Intelligence Resource Management
This.paper should address not only questions of efficient
resource allocation.but also the capacity of the DCI and
others to make appropriate decisions and to manage resources
appropriated to other agencies. The stress would be on
these programs run by the Secretary of Defense on behalf
of the national i
t
lli
ff
n
e
gence e
ort The paper would exami
.ne
the role of the Intelligence Resources Advisory Committee
and the other committees coordinating expensive and sensitive
the DCI, the IC Staff, PFIAB, ana.Congress? If there are
,,systematic misallocations of resources are there or ani7a-
1, ~ g
aWftional or lezislativP' rPfnrme whi rh ar?a aAtrs ~~r7 a~ r.rv ,+
1
New Fields for Intelligence and Sunnort of Tnl-arnai innal
o" collection programs. What role should be played by OMB,
1i1
Q- U
urganizations -- William K. Harris, author
This paper would discuss in what ways the Intelligence ~rZ
Community might hroa(lon Its scop,- of "National Security"
es - to
rclated Issu-
to treat such topics as international food 1h. ;
production, environmental issues, climate forecasts, popula-
tion studies, marine resources, and energy data. The focus
would be on new subjects for intelligence research and new
customers, not only within the U.S. Government but in international organizations such as the United Nations. The
paper would also discuss how U.S. intelligence resources
could be brought to bear to help international groupings
financing arrangements are appropriate?
deal with.: international terrorism and narcotics control.
How can intelligence sources and methods be protected? What
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