SIWA STUDY GUIDE, INTELLIGENCE ALERTING FUNCTIONS IN THE U.S. NATIONAL SECURITY SYSTEM

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP84-00780R004300100031-2
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 23
• Document Creation Date: December 15, 2016
• Document Release Date: February 2, 2004
• Sequence Number: 31
• Publication Date: February 1, 1971
• Content Type: STUDY

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SIWA Study Guide
INTELLIGENCE ALERTING FUNCTIONS
in the
U.S. NATIONAL SECURITY SYSTEM
School of Intelligence and World Affairs
OFFICE OF TRAINING
Central Intelligence Agency
February 1971
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Foreword
The purpose of this brief study guide is to describe the
Intelligence Community's task of alerting senior U.S. officials to
events and situations in foreign countries which vitally affect
U.S. national security.
The guide consists of explanatory text, several functional
charts, and a glossary of terms.
The text (1) discusses some of the basic concepts and
assumptions associated with the alerting functions of the U.S.
intelligence system including: the meaning and scope of intelligence
watch functions, the relationship of critical intelligence to current
intelligence, and the role of indications intelligence; (2) outlines
the structure and functional relationships involved in U.S.
intelligence alerting activities.
The three charts depict the special relationships among the
organizations and components involved in the alerting systems.
The glossary explains the most frequently used designations
and abbreviations associated with alerting functions.
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A. The General Nature of the Alerting Process
The alerting process carried out by the U.S. Intelligence Community
makes a major input to the determination of U.S. policies and actions
intended to enhance the security of the U.S. The need for such an alerting
mechanism was a prime reason for the establishment of the CIA. Certain
basic assumptions, functional concepts, organizations, and methodologies
are unique to this alerting process.
For the U.S. national security structure to be truly effective--
within the limits of available resources such as manpower, facilities, and
funds--key foreign policy officials must be able to make their judgments
and decisions on the basis of accurate and timely intelligence reporting on
foreign affairs. The U.S. national security system was detailed in the
National Security Act of 1947 when members of the U.S. foreign intelligence
community were formally charged with this awesome and continuing responsi-
bility. During WW II, the U.S. Army, Navy, and other organizations had
conducted some intelligence alert functions. The systems that have been
developed over the more than two decades since WW II to accomplish these
alerting functions, now involve large numbers of people in various depart-
ments and agencies and utilize sophisticated methodologies. One of the
principal reasons CIA was established by Congress in 1947 was to provide
such a capability at the national level of government. In virtually every
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international crisis since WW II--the recurring revolts in Eastern Europe,
the several Berlin crises, the Cuban missile crisis, the six-day war of
1967 in the Middle East, the Viet-Nam conflict--the alerting machinery has
proven more than adequate for the task; but in a few cases, as during the
Suez crisis of 1956, new arrangements had to be worked out. A detailed
description of what is involved in intelligence alerting, and who is respon-
sible at various levels, is given in the next section of this study guide
and in the glossary.
To provide effective alerting, the U.S. intelligence system must
(1) collect intelligence information around the clock and world wide,
(2) use rapid and sophisticated communications to bring the data back to
Washington or other command centers in minutes, (3) apply rapid and expert
selection and dissemination techniques to the information received,
(4) analyze, evaluate and interpret the developments around the clock, and
(5) transmit the findings in the form of finished intelligence to appropriate
senior officers in sufficient time and in a form for them to fulfill their
responsibilities in the crisis.
Thus, an important feature of the alerting function is that it
provides for the continuity of essential operations of the U.S. intelligence
organization after normal working hours--both in Washington and overseas.
These after-hours arrangements are commonly referred to as the "watch"
function in a given organization (a recent study identified approximately
100 centers in the Washington area having round-the-clock operations). CIA
has always had a Watch Office, which is now called the CIA Operations Center,
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to care for after-hours responsibilities, particularly for current intel-
ligence reporting but also for other matters requiring continuity of
operations in support of senior levels. In the military commands and in
the Department of Defense in Washington, the watch functions are usually
centered in facilities with titles such as situation rooms, operations
centers, and command centers. In the Department of State, the Operations
Center in the Executive Secretariat provides this service. The National
Military Command Center (NMCC) in the Pentagon performs this function for
the Joint Chiefs of Staff (JCS) and senior military commands. The Watch
alert group in the National Indications Center (NIC) has unique functions
in providing full time support for activities of the Watch Committee of
USIB which are described later. The National Security Agency (NSA) has
certain alerting responsibilities in the SIGINT field. The purpose of a
watch office (no matter what its title) is to provide a single facility
where an organization can depend upon having its essential functions
monitored after its normal work force has departed for the day or weekend.
An underlying assumption of the watch concept is that after-hours work
requires the same quality dedication of professional resources as during
normal hours except they are fewer in number. The big differences are in
number (thousands vs. a few) and in expertise (specialists vs. generalists).
Often, after hours, a single watch officer is responsible for distinguishing
the important from the irrelevant and must act accordingly. In the military
forces, the duty-officers, deck officers, charge-of-quarters perform such
functions. In the intelligence alerting structure, the watch functions
vary from such routine tasks as relaying telephone messages or monitoring
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communications equipment, to such responsibilities as waking key officials
at night in preparation for command action.
A more specialized, and more restricted, use of the term "watch" in
connection with intelligence alert functions has evolved since the early
1950's. Here "watch" refers to the selection, analysis, and reporting
activities and organizations which culminate in what is called indications
intelligence for national security (discussed below and in the glossary).
In this context, "watch" focuses on the task of providing strategic warning
of indications of hostilities through a careful monitoring of current intel-
ligence information. This activity continues regardless of whether it is
during or after normal working hours.
A basic principle of the over-all alerting function for U.S. national
security purposes is that it is a shared responsibility of the entire U.S.
Intelligence Community. No single agency or department has sole responsi-
bility for alerting the top echelons of this government; each agency plays
a distinct and complementary role. CIA for instance, is considered to have
the national intelligence alert responsibility; the National Military Command
Center and DIA's Intelligence Support and Indications Center are expected to
alert the DoD (see Chart A). Overseas each military command has an assigned
alerting role. Indeed, much of the "warning" and "alerting" system is
possible only because of the cooperative effort and resources assigned to
these tasks by the Department of Defense and other segments of the Executive
Branch of government.
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Once the Intelligence Community has alerted the appropriate U.S.
officials of a crisis, the management of US resources in response to the
crisis is the responsibility of the White House--the President, his Assistant
for National Security Affairs, the NSC, and others. The discussion of
crisis management is beyond the scope of this study guide.
B. The Alerting Function
The alerting functions to meet national security objectives arise
principally from the mission assigned to the Intelligence Community to
produce current intelligence for U.S. policy makers and policy implementers.
The prime purpose of current intelligence reporting is to bring to the atten-
tion of senior policy makers an evaluation of the critical and significant
events taking place throughout the world that might have a direct or
indirect impact on U.S. security interests. These evaluations of current
events are performed by area and subject specialists using intelligence
information received in Washington, electrically for the most part, from
all sources. For example, a political 9nalyst evaluates reports of a coup
in the country for which he is responsible.
Intelligence analysts provide reporting on critical events, including
both the facts and their evaluation, often within minutes of the receipt
of intelligence information on the event. The goal is to achieve as near
"real time" reporting as the collection, communications, and dissemination
systems allow. At times, the process may be slowed, however, by the vast
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volume of intelligence information received in Washington--some as a
result of continually improving collection and communications systems.
Rapid analysis may also be delayed by fragmentary information and the
need to coordinate. The separation of critical intelligence and other
significant intelligence information from the remaining mass of incoming
data is the first task of the intelligence watch or alerting function.
Its purpose is to shorten the period between the occurrence of an event
and the alerting of key intelligence and policy officials.
The CIA Operations Center, managed for the DDI by the Office of
Current Intelligence, fulfills this alerting responsibility for CIA on
an all-source basis, around the clock (see Chart B). Its personnel scan
all intelligence information received electrically in the Agency, and
select that which is critical and significant. Operations Center personnel
are experienced generalists who are competent to recognize the significance
of any departure from what is considered normal or anticipated (the critical
situation usually appears in sharp contrast to the norm). Because they do
not have the depth of experience in all fields to provide full analysis,
intelligence officers in the CIA Operations Center call upon appropriate
specialists--such as those in the Office of Current Intelligence, the
Foreign Missile and Space Analysis Center, or the Clandestine Service--for
immediate evaluation of and amplification of facts on critical developments.
After the selected intelligence information is subjected to rapid analysis
and interpretation (including verification or evaluation, and any necessary
background data) key officials may be alerted orally or in writing. The
decision to alert key officials depends upon the importance of the
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development and the time factors involved in acting upon the information.
The Operations Center thus is the focal point for all of CIA's intelligence
alerting functions.
There are several other Agency elements which participate in alerting
functions in various ways both in response to their own operational or
intelligence needs, and to fulfill the overall requirement to keep the DCI
and other key Agency officials informed. Chart B shows the location of
some of these other activities that are most directly involved with overall
intelligence alerting functions. Within the Directorate of Intelligence,
in addition to the primary role of the Operations Center, there are alerting
responsibilities assigned to intelligence production elements--OCI, OSR, and
OER, for example--and intelligence information alerting functions based on
imagery analysis are discharged by NPIC and IAS.
one point during the height of the Cuban Missile Crisis in 1962,
teletype in the White House was the first communications channel through
which the late Pres. Kennedy received the text of the note from Premier
Khrushchev stating
The official text,
nels, was received
that he would remove Soviet offensive missiles from Cuba.
which went through normal diplomatic communication chan-
much later. It is not an exaggeration to state that on
that fateful day in October 1962, war between the US and the USSR--and
possibly WW III--hung in the balance.
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C. The Meaning of Critical Intelligence
Current intelligence information sometimes indicates a situation
which may affect the security interests of the U.S. to such an extent
that it may require the immediate attention of the President. Such reports,
constituting "critical" intelligence information are given special and
priority handling within the U.S. intelligence system. For instance, a
report of a major civil or military disturbance such as the overthrow of a
government may originate from any part of the world and from any source--an
attache, foreign service officer, other U.S. civilian or military officer--
and is introduced directly into a special high-speed communications system
known as the CRITICOM Network operated by the National Security Agency.
This system of priority communications was established in 1958 and is
designed to bring such information into Washington electrically within ten
minutes. The message indicator CRITIC is used to identify all such reports
including practice messages to test the system.
Critical Intelligence thus can be thought of as a special product
of the current intelligence alerting function. Among the examples of
critical intelligence information are the following: declarations of war
or initiation of hostilities; statements however fragmentary or unsupported,
that Communist forces anywhere will initiate hostilities against the U.S.;
sudden or unannounced changes in top government leadership; and other major
international developments such as the molesting of key U.S. officials in
a foreign country. CRITIC messages were transmitted in great numbers
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during the Cuban Missile Crisis of 1962 and critical intelligence was
transmitted between Moscow and Washington in the period just following
the ouster of Premier Khrushchev in 1964.
Critical intelligence is produced as part of the general intelli-
gence alerting process under the guidance of National Security Council
Intelligence Directive (NSCID) #7, Director of Central Intelligence Direc-
tive (DCID) 7/1 and similar directives and memoranda at operating levels.
Analysts at all levels in each USIB Agency play specialized roles in
evaluating and interpreting the intelligence information reports coming
into Washington via the CRITCOM system. Although very few actually are
brought to the personal attention of the President, the machinery exists
to assure that National Security decision-making has the benefit of this
timely, world wide reporting. The methods and facilities involved are
extensive and costly, but there is no substitute, particularly when the
CRITIC messages include indications of imminent hostilities.
D. Role of Indications Intel4pnce
It was pointed out earlier in this text, that a more restricted and
specialized type of intelligence alerting is that associated with "strategic
warning." This kind of alerting focuses on the production of "indications"
intelligence derived from a study of current intelligence information for
any indication that a potential enemy is developing the capability or has
the intention of launching a military attack on the U.S. our forces over-
seas, or gppn our Allies. Indications intelligence is, therefore, synonymous
with strategic warning. It is important to distinguish between critical
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intelligence, discussed earlier, and indications intelligence which is
a term used only when referring to hostilities or the preparatory steps
leading to military actions. For example, Gen. de Gaulle's death was
critical intelligence, whereas reports of the preparations leading up to
and including the actual Soviet invasion of Czechoslavakia in 1968
represented indications intelligence. Both types, however, were sent
via CRITICOM channels.
The system for providing strategic warning and producing indications
intelligence associated with it, developed immediately after WW II as a
result of official reflection on the Pearl Harbor attack of 1941. The aim
of indications intelligence over the years has been to prevent surprise
attack on the U.S. or its Allies principally, but not exclusively, by the
armed forces of Communist nations.
The Intelligence Community in general, and the Director of Central
Intelligence in particular, is responsible for indications intelligence
for U.S. national security. The senior body which manages the operation
of the entire system for strategic intelligence warning is the Watch
Committee--one of the 14 committees of the USIB. The chairman of the Watch
Committee is the Deputy Director of Central Intelligence. The full-time
working group for the Watch Committee is in the National Indications
Center (NIC)--a 24-hour facility located in the Pentagon under the direc-
tion of a CIA officer. The Watch Committee meets weekly and can be called
into special session at any time to assess information which requires
Immediate attention.
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In essence, indications intelligence is one facet of current
intelligence production. Indications intelligence seeks to bridge the
gap between estimative intelligence and current intelligence. Between
a judgment that we can expect trouble and current "tactical" intelligence
reporting that an attack has begun, there is a time gap during which the
other side is making praparations for that attack. Indications intelli-
gence tries to bridge that gap by a careful monitoring and assessment of
a whole spectrum of indications gleaned from current intelligence infor-
mation. Hopefully this process is successful long before the initial
critical intelligence alert is received in Washington.
The system for producing indications intelligence on a continuing,
round-the-clock cycle under the guidance of the Watch Committee has been
improved over the past two decades. From a vast network of indications
centers operated throughout the world by the Dept. of Defense, indications
analysis culminates in a all-source intelligence product The Watch Report
which is normally sent to the USIB weekly for its approval. In one sense
this report could be considered a temperature reading of the world's con-
frontation posture. The central responsibilities and functional relation-
ships of the NIC to the rest of the "watch" system are shown on Chart C.
E. Functional Relationships
In the preceding discussion it has been established that intelligence
alerting functions of the U.S. government are extensive and in some respects
rather complicated. All elements of the U.S. intelligence community relate
in one way or another to the over-all system according to their special
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responsibilities and competencies under national law. The details of
these organizational and functional relationships involved in the
alerting processes are shown in the three attached charts:
Chart A - shows the policy and command level structure of
alerting functions for U.S. national security. All of
the mechanisms here point to the National Security
Council and the President; all major elements of the
Intelligence Community are shown.
Chart B - this chart shows the alerting functions within
CIA and encompass all four directorates. The focus
is on the DDCI and DCI in their managerial and
advisory roles both in CIA and in USIB.
Chart C - depicts the various echelons involved in the
production of indications intelligence and the
strategies involved, and focuses on the effort in
support of the Watch Committee and USIB.
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SIR U CIV R tIreg LFERITIMe riiiiiiiINRfitortrrommorttcUR ITY
SPEC. ASST. TO PRES.
FOR NAT. SEC. AFFAIRS
WHITE HOUSE
SITUATION ROOM
(POLICY & COMMAND LEVELS)
THE PRESIDENT
THE NATIONAL SECURITY COUNCIL
CIA
STATE
U.S. INTELLIGENCE BOARD
USIB COMMITTEES
NIC
DEFENSE
NSA
CIA-
***
OPERATIONS
OPERATIONS
DIA
SIGINT
CENTER
CENTER
INTELLIGENCE
(OFSCEN)
of
SUPPORT
COMMAND
Watch Office
Executive
AND
and
Secretariat
INDICATIONS
CENTER
Situation
CENTER
Room
* The
** The
*** The
AEC FBI
These two USIB agencies
have no direct role in
current intelligence/indi-
cations "watch" or alert
responsibilities although
they do participate on
USIB committees concerned
with 'these matters.
Alerting, Operational Liaison, and Coordination
Office of Current Intelligence/Indications, within INR, provides support to the Operations
Center of the Department of State.
Department of Defense also maintains other intelligence alerting and operations centers
within major military commands both within the U.S. and overseas.
National Indications Center (NIC) is located in and supported by the Department of Defense
but is responsible to the USIB Watch Committee for its tasking and intelligence production.
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CHART A
Senior
Intelligence
Advisor fJ
to DCI IA
AndfOrRlekr0121tEtsitiNciE
Att
ri JN?WW1? IA
THE PRESIDENT
NATIONAL SECURITY COUNCIL
DCI
DUCI
USIB
CABLE SECRETARIAT
CDO
DEPUTY
DEPUTY
DEPUTY
DEPUTY
DIRECTOR
DIRECTOR
DIRECTOR
DIRECTOR
for
for
for
for
INTELLIGENCE*
SCIENCE & TECHNOLOGY**
PLANS
SUPPORT***
24-hour, OCI
all source, CIA
current OPERATIONS
intelligence CENTER
alerting Watch Office
center (SDO) (CSDO)
Situation Room
* *
* * *
Analysis and current
inte/1. support in
missile and space
activity
1
FI STAFF
IWO
+IA SIGNAL CENTERIA
-I
Dissemina-
tion and
alerting
functions
pertaining
to cable
traffic
Release of teletype dissemina-
tions of Clandestine Service
intelligence information to CIA
and rest of intell. community
Administrative control
Alerting, Operational
Liaison, and Coordination
DDS&T provides, in addition to FMSAC input, general and indirect support to intelligence production
activities such as the JAEIC and GMAIC inputs to current intelligence.
DDS has no direct responsibility for intelligence alerting and watch activities but does provide compre-
hensive support for all CIA contingencies in such matters as rapid communications,
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o Primary
Consumers
o Directs Total
Watch Effort
o Approves Watch
Report
o Rakes
Assessments
o Produces
Watch Report
o Maintains 24 hour
Indications Watch
o Makes Continuing In-
dependent Assessments
of Incoming Data
O Produces ad hoc
Studies on Special
Problems
O Drafts, Coordinates
Watch Report
o Acts As Staff For
Watch Committee
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STRUCTURE FOR INDICATIONS INTELLIGENCE
THE PRESIDENT
NATIONAL SECURITY COUNCIL
UNITED STATES
INTELLIGENCE
BOARD
THE WATCH COMMITTEE
(Chairman - CIA)
CIA I STATE I DIA*
NSA I AEC I FBI
*In addition to DIA, the Armed
Services representatives are
present as observers only.
NATIONAL
I ND [CATIONS CENTER
(Director, NIC)
Representation:
?CIA ?ACSI
?ONI ?NSA
?AFNIN
**STATE
** Crisis periods
only
INPUTS
TO
NIC
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? All-source intelli-
gence information
o All-source finished
intelligence contri-
butions from USIB
agencies (CIA's via
INDICO)
CHART C
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GLOSSARY OF TERMS
General Terms
Critical intelligence is information indicating a situation or pertaining
to a situation in a foreign country which affects the security or
interests of the U.S. to such an extent that it may requ-r.re the imme-
diate attention of the President (e.g., initiation of civil war, a coup,
or other major civil or military disturbance). Critical intelligence
information may originate from any collection element in the U.S. intel-
ligence system, from anywhere in the world. Under provisions of National
Security Council Intelligence Directive #7 and the related Director of
Central Intelligence Directives, such reports must be transmitted by
priority high-speed communications to Washington, marked CRITIC.
CRITIC. A message indicator used on all reports of critical intelligence
information.
CRITICOM. The communications system specially designed to handle critical
intelligence information over a high speed "consumer broadcast" network
operated by the National Security Agency. This
in 1958, is manned twenty-four hours a day, and
White House, Department of Defense and military
agencies as CIA--normally receive CRITIC messages
from the time they are introduced into the CRITICOM system.
the message hits the NSA terminal, it is re-transmitted automatically
designated addressees both in and outside of the U.S.
net, first established
all addressees--the
commands, and such
The instant
to
Indications Control Officer (INDICO). The person responsible for indications
intelligence matters in CIA. The INDIC() is an OCI officer who works
closely with the Chairman of the Watch Committee and with the National
Indications Center.
Indications intelligence deals with reporting and analysis of hostile intent
or hostile activity directed against the U.S., our forces overseas, or
our allies. The production of indications intelligence--a special cate-
gory of current intelligence--is intended to provide the USIB with the
earliest possible intelligence warning of, and a continuing judgment on,
Soviet, Chicom, and other nations' intentions to engage in aggressive
action by regular or irregular armed forces.
Indicator. An activity or event which satisfies the established definition
for indications intelligence above. The designation "indicator" is used
in various USIB collection guides and procedural papers to identify
specific actions indicating imminent hostilities, and other critical
situations not necessarily involving only Communist countries.
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National Indications Center (NIC) is the full time staff which supports
the USIB Watch Committee in the analysis and reporting of indications
intelligence. It is located in the Pentagon and is under the direction
of a CIA officer. It is staffed by personnel from CIA, NSA, Army, Navy,
and the Air Force.
Warning. Term often used synonymously for indications intelligence. In
military circles, warning is modified by the use of the term strategic
(long time-span) or tactical (short time-span). "Early Warning" is a
term often associated with radar-derived intelligence (such as that
provided by missile and aircraft detection systems).
White House Situation Room is an alerting and command center within the
White House under the control of the Special Asst. to the President for
National Security Affairs. It is manned around the clock, largely by
officers assigned from CIA. (See Chart A)
Terms Associated with CIA
Cable Secretariat Duty Officer (CDO) represents the Cable Secretary after
hours, and expedites delivery of all cables containing intelligence
information to the OPSCEN, the CSDO and the Intelligence Watch Officer.
When cables appear to warrant prompt action, the CDO delivers them to
the CSDO or notifies an officer in the action unit, as appropriate.
CIA Operations Center (OPS/CEN) is an all-source, current intelligence and
operations alert center serving the DCI through the DDI, 24 hours a day.
Because of its close association with current intelligence reporting,
the center receives day-to-day guidance from the Director of Current
Intelligence. (See Chart B)
Clandestine Service Duty Officer (CSDO) is the Chief Duty Officer for the
Clandestine Service after normal working hours. The CSDO--located in
the CIA Operations Center--is responsible for alerting the Clandestine
Service on cable traffic requiring immediate action. He may consult
with the Intelligence Watch Officer (IWO), of the Clandestine Service,
located in the CIA Cable Secretariat.
FMSAC. The Foreign Missile and Space Analysis Center in the Directorate
of Science and Technology has as its principal functions analysis and
reporting on foreign missile and space events, including the production
of current and estimative intelligence on offensive missile and space
developments. FMSAC is also responsible for collection support and the
evaluation of collection systems.
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Intelligence Watch Officer (IWO) is the Foreign Intelligence (FI) Staff
officer, located in the Cable Secretariat, who is responsible for
releasing all Clandestine Service-acquired intelligence information
25X1 to CIA components, and to other
elements of the intelligence community both during and outside of
normal duty hours.
Senior Duty Officer (SDO) serves as the senior officer in charge of all
after-hours responsibilities of the CIA Operations Center. During
normal duty hours, the SDO is responsible for the alerting function of
the Center while the other responsibilities of the Center are carried
out by the Chief and other members of his staff. This officer was
formerly designated SIDO (Senior Intelligence Duty Officer).
Note: There are several other officers--under various titles--who
serve in after-hours duty assignments for CIA components, e.g., the
Night Security Officer (Office of Security), the Signal Center Officer
(Office of Communications), and the duty officers in FMSAC.
Terms Associated with the Department of Defense (Do21
DEF/SMAC. DoD operations center, at Ft. Meade, Md., jointly managed by the
Defense Intelligence Agency (DIA) and the National Security Agency (NSA).
25X1
Intelligence Support and Indications Center. A component of DIA providing
a 24-hour intelligence alert facility for the DoD. It is linked directly
with the CIA Operations Center, and DoD operations centers world-wide.
NSA SIGINT Command Center. The operations center at NSA serving its
operating and staff elements on a 24-hour basis. It is linked directly
with CIA and other USIB operations facilities.
National Military Command Center (NMCC). A major DoD control facility
located in the Pentagon which serves as the "voice" of the Joint Chiefs
of Staff for military operational activity. It is manned by all
services. It has a CIA representative assigned for liaison on a
24-hour basis and has communication links with the CIA Operations Center.
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Terms Associated with the Department of State
Office of Current Intelligence/Indications (INR/RCI). This element in the
Bureau of Intelligence and Research (INR) produces current and indica-
tions intelligence and provides support to the State Department
Operations Center.
State Center. A 24-hour alert facility under the
Department's Executive Secretariat. It is closely linked by secure
communications with the CIA Operations Center.
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