COMMENTS OF THE INTELLIGENCE DIRECTORATE ON CERTAIN RECOMMENDATIONS IN THE INSPECTOR GENERAL'S SURVEY: FOREIGN INTELLIGENCE COLLECTION REQUIREMENTS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP85G00105R000100130012-7
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 18
• Document Creation Date: December 12, 2016
• Document Release Date: July 30, 1998
• Sequence Number: 12
• Publication Date: March 10, 1967
• Content Type: REPORT

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25X1A
COMMENTS OF THE INTELLIGENCE DIRECTORATE ON CERTAIN RECOMMENDATIONS
IN
THE INSPECTOR GENERAL'S SURVEY: FOREIGN INTELLIGENCE COLLECTION REQUIREMENTS
(Note: Pages on individual recommendations are
prepared. in three columns--the left-hand. column
contains the original recommendation; the center
column, the proposed. restatement of the recom-
mendation; the right-hand column) comments and,
background on the recommendation and. its restate-
ment.)
10 March 1967
USE ONLY
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SUMMARY OF DDI COMMENTS ON CERTAIN RECOMMENDATIONS IN IG SURVEY, "FOREIGN INTELLIGENCE COLLECTION REQUIREIVENTS"
Rec. No. Subject
1 DCID 1/2 CNIO
DCID 1/3 PNIO
Rescind annual revision
DCID 1/3
CIA rep on IPC; direct
use of IPC List
Revise RQM Form 986
Analyst-collector
communications
Common role for CGS in
re DDI and. DDS&T
Rotate CGS and. FI
Staff pers
CIRL notice
CIRL preface
CIRL background.
statements
A program for col-
lection guides
Accept
Yes
Yes
Yes, but...
Yes
Yes )
10 March 1967
Restatement is necessary to define committee task and objective, without prejudging out-
come. Guidelines are suggested, including Recommendation No. 2.
Incorporated in restatement of Rec. No. 1 as a guideline to committee.
Rec. No. 3--for DDP action--is the major recommendation. It directs revision of DCID 5/5
and passage by USIB, revision of IPC procedures, and early completion of IPC List. DDI
action on No. 4 will have to await some accomplishment of at least first two steps. In
meantime, steps under Nos. 8, 24, 25, 26 will help with problem.
A possibly helpful detail; related. to No. 8 in particular.
Restated to shift focus to general area of analyst-collector communications, rather than
limited one of "levyingof new requirements upon CIA collectors by CIA analysts," as in
original recommendation.
Rec. No. 8 and Rec. No. 26 are basic to accomplishing the objectives of the survey. Any
progress on most of the other recommendations depends on what is done in response to Nos.
8 & 26. Furthermore, the two recommendations are complementary in their implications for
management. For these reasons, they have been combined and amplified. The restatement
affirms the responsibilities of the intelligence producing offices in DDI and DDS&T and
of CGS toward each other, proposes creation of a Collection Guidance Advisory Group (CGAG)
to help translate responsibilities into action, and defines the authority of Chief, CGS.
Rotation proposed by IG report probably costs more than it buys us. Recommend instead
periodic meetings of appropriate CGS and FI Staff personnel to discuss mutual problems.
The restatement combines Rec. Nos. 10, 11, 12 into one. It recommends undertaking No. 11
on a trial basis. The restatement redefines objective of No. 12 and broadens responsibility
to include the other intelligence producing offices contributing to the questions included
in the CIRL; OCI is not the only office, nor is it even the most important in terms of
this particular problem.
The restatement calls on Chief, CGS, in collaboration with CGAG, to prepare collection
guides as needed on selected intelligence problems
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 17
25X1 D1 a
20
Subject
A trial collection
guid.ance program for
DCS
Access for CGS SIGINT
Group to NSA collectors
Duplication between
human sources and,
on Free World.
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Accept Restate Comment
Yes, but... No The trial should be postponed until other recommendations--such as Nos. 1, 8, and. 26--
have had. a chance to work and. their effect on DCS has been measured..
Yes Yes Recommends that action be transferred. from DDI to CIA SIGINT Officer.
SIGINT, COMOR and. multi- Yes
sensor reconnaissance
requirements
CIA position on over- Yes
head. recce require-
ments
Responsibilities of Yes
division chiefs
Responsibilities of Yes
Office chiefs
DDI support to CGS Yes
Training on collection
guidance Yes
Yes The problem does not appear to be large.
Yes Recommendation restated. to make it the complement, at the working group level, of Rec.
No. 23, which is aimed, at the coordination of CIA position on problems coming before
COMOR.
Yes The restatement in effect prescribes continuation of present process--involving DDI and.
DDS&T components and CGS in a continuing series of meetings culminating in one with ADDI
and other senior persons--which operates to alleviate the problem noted. in the original
recommendation.
Yes The restatement combines Rec. Nos. 24 and. 25, which are detailed., programmatic listings
of tasks, into a single comprehensive directive to CGS and CGAG to initiate a methodical
attack on the problems of management in the collection requirements process.
Yes See comment on No. 24, above.
Yes Combined with Rec. No. 8.
Yes Action transferred. to Director of Training, under general guidance of DDI, DDS&T, and.
DDP, and, with assistance of CGS. Training is OTR's business, not that of CGS.
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 It is recommended that:
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ApproveccgpriR%le a 2002106118: CIA-RDP85G00105R000100130012-7Comment:
It is recommended that: No. 1 is a major recommendation, No. 2 is a detail.
In restating the recommendations, the two can be
1 An ad hoc committee of senior represent-
atives of CIA production and collection components,
chaired by the Deputy Director for Intelligence,
undertake a review of the purpose and use of DCID
No. 1/2, "Comprehensive National Intelligence
Objectives," and DCID No. 1/3, "Priority National
Intelligence Objectives," and develop a CIA posi-
tion with respect to their content.
Z.( The committee then prepare revisions of
the two DCID's for proposal by CIA to USIB. In
preparing the revisions, the..Committee should. con-
sider the desirability of the following:
(Qa That DCID No. 1/3 contain a short
list of specific, unequivocal Objectives
defined as those questions upon which
our national survival depends.
(a) The Deputy Director for Intelligence
chair an ad. hoc committee of senior representatives
of the production and collection components of CIA
to develop a firm, authoritative CIA position with
respect to the proper contect of DCID No. 1/2,
"Comprehensive National Intelligence Objectives,"
and. DCID No. 1/3, "Priority National Intelligence
Objectives."
(b) This committee prepare a revision of DCID
No. 1/3, for porposal by CIA to USIB, which will
contain a short list of specific, unequivocal Objec-
tives defined as those questions upon which our na-
tional survival depends.
(c) The committee prepare such a revision of
DCID No. 1/2, for proposal by CIA to USIB, as w?11
appropriately cover other subjects of proper con-
cern to intelligence which do not affect our na-
tional survival
It is recommended that:
The Agency position include, for presentation
to USIB, proposals that USIB rescind its require-
ment for a strict annual schedule for revising
DCID No. 1/3 and that USIB abolish the quarterly
supplements to DCID No. 1/3 as serving no necessary
or even useful purpose.
(Jr) That DCID No. 1/2 appropriately
define those subjects d goographie
are"3to which normal and continuing
intelligence collection and researeb are
applicable, and those which do not warrant
the development or allocation of intelli-
gence resources.
(e,) That the CIA proposal include a
recommendation for establishing a suit-
able mechanism to review the efforts of
the member agencies with respect to
PNIO's, and to recommend. to the USIB
the specific collection, processing,
and analytical actions that appear
necessary to ensure most effective
coverage of the problems.
(A) That the CIA proposal include aboli-
tion of the present schedule requiring
annual revisions of the DCID No. 1/3
and the issuance of quarterly supple-
ments to it.
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combined.
The restatement is intended to do several things:
{Air It places the responsibility for action
on the committee, rather than on its chairman.
This appears to be the intent of the report. While
assigning the chairmanship to the DDI is proper,
the problem is Agency-wide and so is the responsi-
bility.
It sets the committee's objectives with-
out unnecessary adjectives (obviously the com-
mittee is not going to develop a position which
it regarded as unfirm or non-authoritative) and
without prejudging the committee's conclusions.
For example, revising DCID No. 1/3 so that it con-
tains a 'j~hort list of specific, unequivocal Objec-
tives defined as those questions upon which our
national survival depends" is one way to solve the
problem. It may be the most desirable way. But
the committee should be free to consider other ways
before it makes up its mind..
It suggests that the committee consider
attempting to define, in DCID No. 1/2, those sub-
jects-area] which are not sufficiently impor-
tant to warrant the expenditure of intelligence
resources. A statement of those subjects C"d-
areec considered by the leadership of the intelli-
gence community to be at the margin could help
control the proliferation of requirements and.
reduce the effects of the "information explosion."
JW It also suggestSthe committee consider
recommending that some mechanism be established
to monitor community-wide implementation of the
revised PNIO's and to recommend appropriate
action.
No. 1
No. 2
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No. 4
The Deputy Director for Intelligence instruct
the Collection Guidance Staff to draft, and coor-
dinate with all elements of CIA which produce
clandestine collection requirements, a notice for
Agency publications which:
a. Defines the function and. responsibilities
of the CIA member of the IPC.
b. Defines the function and scope of the IPC
List and. directs Agency originators of requirements
to consult and. cite it in formulating their needs
for clandestine collection.
No. 4
Action on this recommendation Is critically
dependent upon the action taken by the Deputy
Director for Plans with regard to Recommendation
No. 3. Once DCID No. 5/5 has been revised and
passed by USIB, IPC procedures have been revised
to make them responsive to the new DCID, and work
has begun on the IPC List, then the action called
for in Recommendation No. 4 can take place. In
the meantime, the steps being taken in response
to restated Recommendations No. 8, No. 24, No.'25,
and No. 26 should. be helping to improve the per-
formance of the producing offices in formulating
their needs for clandestine collection.
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 No. 6
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Approved For Release 2002/06/18 : CIA-RDP85GO0105RO00100130012-7Comment:
No. 6
It is recommended that: It is recommended that:
The Deputy Director for Intelligence The Deputy Director for Intelligence charge
the Chief, Collection Guidance Staff, in collab-
a. Direct the Chief, Collection Guidance Staff, oration with the Collection Guidance Advisory
to revise Form 986. Group (see Recommendation No. 8), with reviewing
Form 986, "Collection Requirement," revising it
b. Take measures to ensure that Form 986, as as necessary, and taking measures to ensure
revised, is correctly and consistently used by all its correct and consistent use, including the
CIA writers of collection requirements. issuance of an appropriate notice of instruction
for supervisors and analysts.
c. Issue a notice instructing analysts and
their supervisors on the preparation of requirements.
It is recommended that:
The Deputy Director for Intelligence direct
the Chief of the Collection Guidance Staff to
develop, in collaboration with requirements officers
of the Clandestine Services and the Domestic Contact
Service, a means whereby the levying of new require-
ments upon CIA collectors by CIA analysts is preceded
by an inquiry as to the feasibility of satisfying
such a requirement with current assets, to the end
that formal ad hoc requirements be limited. to those
of immediate practical value as collection guidance.
It is recommended that:
The Deputy Director for Intelligence direct
the Chief, Collection Guidance Staff, in collabora-
tion with the Collection Guidance Advisory Group
and the requirements officers of the Clandestine
Services and Domestic Contact Service, to develop
appropriate measures that facilitate communication
and exchange of information between CIA analysts
and CIA collectors regarding the effect of analyst
requirements on collector capabilities. A major
objective is to increase the amount of analyst-
collector interchange that takes place in advance
of the submission of formal ad hoc requirements.
It is possible that
some changes in the form will help. However, the
problem is not the inadequacy of the present Form
986, but the fact that few persons along the line--
from the analyst who writes the requirement, to
the supervisor who reviews and endorses it, to the
collection guidance officer who transmits it to the
collector-- have felt compelled to
meet the validation criteria conscientiously.
Progress achieved under restated Recommenda-
tions No. 8, No. 24, No. 25, and No. 26 is probably
more important for obtaining the results sought by
the IG than revision of Form 986.
This recommendation concerns one of the
details that will need attention as the Agency moves
to incorporate the ideas of the IG report into its
operating procedures. This recommendation is of
a piece with Recommendation No. 6 and the restate-
ment is meant to give the two a common action base.
The only substantive change in restating the recom-
mendation is that the focus has been shifted to the
general area of analyst-collector communications,
and not limited, as in the original recommendation,
to "the levying of new requirements upon CIA col-
lectors by CIA analysts."
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No. 6
No. 7
 No. 8
It is recommended that:
M
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Approve&lxorRs20b~106118 : CIA-RDP85G00105R000100130012-7 Comment :
The Deputy Director for Intelligence, in coor-
dination with the Deputy Director for Science and.
Technology, issue a statement describing the mission
and functions of the Collection Guidance Staff in
identical terms for each directorate.
No. 26
The Deputy Director for Intelligence furnish
all necessary support to the Collection Guidance
Staff in its efforts to:
(a) Mitigate the deleterious effects of the
Information Explosion that are already being felt.
(b) Apply strict selective criteria to all
foreign intelligence requirements in order to prevent
the Information Explosion from getting completely
out of hand..
(c) Introduce progressively more order and
system into human-source requirements.
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appropriate. The Group will meet to review problems
arising in the collection guidance process and to
take specific actions, or develop programs, to re-
solve the problems. A first item of business for
the Chairman and. the Group will be to prepare for
following offices: FMSAC, OBI, 0 , ONE ORR, and
OSI. Representatives of collet ions c ivi s may
be invited to attend. meetings of the Group as
.7:: nd.er the chairmanship of the Chief, Collection waste motion. So disparate and complex are the
Guidance Staff. The Group will be made up of the problems involved that it is necessary to have
Deputy Directors, or their representatives, of the specialists who give their full time and attention
It is recommended that:
1. The Deputy Director for Intelligence and
the Deputy Director for Science and Technology
direct the Chief, Collection Guidance Staff, to
provide assistance in support of the intelligence
producing offices in matters relating to collection
guidance, particularly with respect to those
measures necessary to:
(a) Apply strict selective criteria to
all foreign intelligence requirements in
order to prevent the Information Explosion
from getting completely out of hand.
(b) Introduce progressively more order
and system into the preparation and, levying
of requirements, especially those affecting
human sources.
(c) Take other necessary steps to mitigate
the deleterious effects of the Information
Explosion that are already being felt.
The intelligence producing offices in turn are
responsible for utilizing the assistance of and
cooperating with the Collection Guidance Staff
in matters concerning collection guidance, parti-
cularly those bearing on (a), (b), and (c), above.
We believe that Recommendations No. o and
No. 26 are so basic to accomplishing the objective.
of the survey and so complementary in their impli-
cations for management that they should be com-
bined. and amplified..
The restatement of the combined. recommendation:
affirms the responsibilities of the intelligence
producing offices and of CGS toward each other in
matters relating to collection guidance, proposes
creation of an Advisory Group to help translate
these responsibilities into action, and, defines
the authority of. the Chief, Collection Guidance
Staff.
The language of original Recommendation No. 8
tends to suggest that there should be a relation-
ship between DDS&T and CGS that can be represented
on a table of organization. The organizational
aspect is, in fact, largely irrelevent. CGS is
now located within the proper organizational con-
text and at the proper organizational level to
do its job.
What is important is the ability of CGS to
play an important role for the intelligence produci
offices in the process of collection requirements
and guidance. This process exists and will go on
whether CGS exists or not. It is clearly to the
advantage of all concerned., producers and col-
2. To facilitate effective common action on lectors, to see that communications between them
collection guidance problems and. measures, a and the interrelatiozf their needs and capabilitie
collection Guidance Advisory Group will be established are handled. effecien ly and with a minimum of
to making the process work. These are the people
who make up CGS, and this is its role.
The problems posed by the collection require-
ments process are not DDI problems. Nor are they
DDS&T problems. They are the common problems of
intelligence producers attempting to make the col-
lection machinery work effectively for their needs.
No. 8/No. 26
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issuance a notice that states the mission and. It is not necessary for CGS to intrude upon
functions of the Collection Guidance Staff the chain of command. in any Office of either
in identical terms for both directorates. Directorate for it to carry out its responsibi-
3. The Chief, Collection Guidance Staff,
in collaboration with the Collection Guidance
Advisory Group, will keep the performance and
needs of the two Directorates in the field. of
collection requirements under continuing review.
Where deficiencies or inadequaies are identified.,
the Chief, Collection Guidance Staff, is authorized.
to make recommendations for appropriate action to
the office directors or to the Deputy Director for
Intelligence and. the Deputy Director for Science
and. Technology, as necessary.
lities for specialized assistance in the field of
collection requirements. It is necessary, however,
for the producing offices to have confidence that
their substantive interests will be understood and
fully considered by CGS in any recommendations or
judgments it makes in handling the collection
requirements process.
One way to give the producing offices a voice
in how CGS plays its role in the process is to
create an Advisory Group made up of one senior sub-
stantive representative from each of the offices.
The group, meeting under the chairmanship of the
Chief of CGS, would hear the problems that arose
within the offices or between the offices, the
collectors, and CGS, and assist in their resolution.
CGS would have a forum within which to communicate
its judgments on what actions were important and
what were marginal in the collection requirenn nts
process. If these were adverse to the stated re-
quirements of the analysts in a producing office,
its representative would be present to amplify on
the priority the office attached, to the requirement
or to take other appropriate action.
As indicated in Paragraph 3, the recommendation
as restated makes explicit the authority of the
Chief, Collection Guidance Staff, to have recourse
to the office directors and. to the heads of the two
Directorates when necessary to the solution of
identified deficiencies. Under this arrangement,
the Directorate heads can relate deficiencies in
In short, we believe that the combined. restate- the collection guidance process (and. the steps or
ment of recommendations No. 8 and No. 26,. if accepted. resources necessary to solve them) to the total
and. implemented, will enable the intelligence pro- responsibilities and resources of the Directorates.
ducing offices and. the Collection Guidance Staff
to move progressively toward a more balanced. con-
cern for requirements problems and. a more rational
and effective handling of the collection require-
ments and. guidance process.
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No. 8/No. 26
 ? No. 9
The Deputy Director for Intelligence, in
coordination with the Deputy Director for Plans,
arrange for the regular exchange of officers
between the Requirements and. Evaluation Branch
of the Intelligence Group of the Foreign Intel-
ligence Staff and the Human Resources Group of
the Collection Guidance Staff.
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No. 9 Comment:
The Deputy Director for Intelligence and the
Deputy Director for Plans charge the Chief, Col-
lection Guidance Staff and the Chief, Foreign
Intelligence Staff with holding periodic meetings
of the Human Resources Group/CGS and the Require-
ments and Evaluation Branch of the Intelligence
Group/Fl Staff to discuss mutual problems and.
needs in bridging the gap between the producer
and the Clandestine Services collector.
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No one questions the
desirability of improving the ability of CGS and Fl
Staff to communicate on the problems they have in
common. We do question, however,whether the gains
to be realized. from exchanging persons for a six-
month period would offset the loss of those persons'
services throughout that time. It is unlikely that
the exchangee could become productive in the new
location in such a short period of time. Nor should
he be under pressure to do so because he is there to
learn. At the same time, if he is being trained
properly, he is requiring the time of the profes-
sionals in the office, thus detracting from their
ability to concentrate on collection requirements
tasks.
For these reasons, we believe that the two
organizations should periodically schedule meetings
in part to get to know one another better, and also
to discuss the kinds of problems they share and what
can be done to improve their ability to handle them.
No. 9
 It is recommended that:
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Nos. 10, 11, and 12 Comment:
The Deputy Director for Intelligence, in coordi-
nation with the Deputy Director for Science and Tech-
nology, issue a notice explaining the status and use
of the CIRL.
It is recommended that:
The Deputy Director for Intelligence, in coordi-
nation with the Deputy Director for Science and Tech-
nology, direct the preparation for each issue of the
CIRL of a preface identifying the most important
needs listed. therein.
The Deputy Director for Intelligence direct the
Director for Current Intelligence to assume responsi-
bility for the regular production of background
statements for the CIRL.
The Deputy Director for Intelligence and. the of the total effort being undertaken to improve
Deputy Director for Science and. Technology direct understanding of the collection guidance program
the Chief, Collection Guidance Staff, in collabo- on the Agency. By itself, it would have little
ration with the Collection Guidance Advisory Group, effect.
take the following measures to improve the Current
Intelligence Reporting List (CIRL): Para 2: The idea proposed in Recommendation
No. 11 should. be undertaken initially on a trial
1. Prepare and issue to recipients of the basis. Singling out a small number of questions
CIRL a notice explaining its purpose and use. could. draw attention away from the main body of
questions and cause collectors to ignore, or at
2. Initiate on a trial basis the preparation least discount, all but the "important" ones in
of a preface to each CIRL that would identify the the preface. Also, there is some danger that the
most important needs listed. in that issue. Some process of selection and. coordination, if it be-
arrangement like the following could be considered.: came too elaborate or burdensome, might impair
each contributing office would nominate several the effectiveness of the CIRL as an informal channel
questions from their total list as ones of particular for direct communication between producer and col-
current interest; after all lists had. been submitted, lector.
an informal meeting of representatives from each
office would be convened under CGS auspices to make Para 3: The original statement of Recommendation
the final selection of questions for the preface. No. 12 has two defects: it does not define "back-
If the selection process proved satisfactory and. ground statement" and. it limits action to only one
the results useful, the preparation of a preface of the contributing offices. The terms used in the
could be instituted as a regular feature of the text to talk about background statements ("pre-
CIRL. sentations of the intelligence base" and Washington's
"viewpoint on field. situations") indicate that the
3. Require that brief introductory comments authors have in mind something far more comprehensive
are prepared as necessary to clarify and give proper than we believe is desirable, necessary, or practi-
context to questions submitted. for the CIRL. cable. We believe the purpose will be served. if
pains are taken to see that questions requiring
some explanation or background to be understood are
accompanied by brief introductory comments. OCI is
an important office for this aspect of the CIRL but
it is by no means the only one; ORR and OSI also
prepare numerous questions that may benefit from
the addition of brief introductory comments.
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It is recommended that:
Para 1: The action called for in this restate-
ment of Recommendation No. 10 is viewed. as one part
No. 10
No. 11
No. 12
 No. 13
The Deputy Director for Intelligence, in
coordination with the Deputy Director for
Science and Technology, direct the preparation
and. implementation of a program for the produc-
tion and. periodic revision of comprehensive
guides on selected. intelligence subjects.
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No. 13 Comment:
It is recommended that:
The Deputy Director for Intelligence and the
Deputy Director for Science and Technology direct
the Chief, Collection Guidance Staff, in collabo-
ration with the Collection Guidance Advisory Group,
to initiate the preparation of collection guides
as need.ed. on selected. intelligence problems.
We detect a certain ambivalance in the IG
Report's discussion of this minor recommendation.
On the one hand., the report soundly observes that
"the collection guide is busy work unless it is
likely to lead to useful collection action or
realistic operational planning." But then it
goes on to find virtue in the fact that the col-
lection guide, "like the CIRL, can be issued to
several collectors without regard to specific
capabilities," a concept that is excoriated with-
out mercy in the chapter on the Information
Explosion.
Because collection guides have proved useful
on occasions in the past, particularly where they
were carefully molded to match a specific collec-
tion need with a certain collector's capabilities,
we believe that the core idea contained in the
original recommendation whould be retained.
The restatement eliminates the word "program"
and all that it conjures up of an institutionalized
way of performing the function, with a stylized
format, submission of program calls, formal annual
or semi-annual reviews, etc. This way lies busy
work.
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No. 14
No. 14
The Deputy Director for Intelligence direct
the preparation, on a trial basis, of a collection
guidance program for the Domestic Contact Service.
No restatement needed., but see Comment.
In the absence of more compelling reasons
for going ahead on this immediately, we
believe that action on this recom-
mendation should be postponed until other, more
fundamental recommendations--such as No. 1,
No. 8 and No. 26--have been implemented and their
effects on the collection efforts of DCS measured.
The IG Report shows that, despite the absence
of an IPC-like guidance document, the Domestic
Contact Service has been successful in responding
to substantive requirements, often more successful
than collectors who possess such documents.
By itself, the recommendation will not
remedy the tendency to give first preference
to clandestine or technical collection methods
rather than. overt human sources. Nor will the
recommendation by itself remedy the so-called
lack of guidance to DCS on Free World subjects.
Any attempt to write a two-year program for DCS
before the PNIO's and CNIO's are revised probably
would result in an enumeration of the majority
of the countries of the world. Recommendation
No. 11, on the preparation of a preface of "most
important needs" for the CIRL, probably will be
as useful for providing DCS with guidance as the
proposed program.
In short, the changes resulting from other
recommendations should directly benefit DCS and.
may eliminate the need. for any further consideration
of preparing, on a trial basis, a formal two-year
collection guidance program for DCS.
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No. 14
 No. 16
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ApproveocF. ori6telease 2002/06/18 : CIA-RDP85G00105R000100130012-Xomment :
The Deputy Director for Intelligence pro-
vide for the members of the SIGINT Group of the
Collection Guidance Staff such technical training
and access as will facilitate their mission of
fostering communications between CIA intelli-
.gence analysts and. community COMINT collection
specialists.
It is rec9mmend.ed that:
The Deputy Director for Intelligence, in
coordination with the Deputy Director for Plans,
ensure that duplication between COMINT and human-
source requirements on the Free World is reduced.
to the necessary minimum.
The CIA SIGINT Officer arrange with the
National Security Agency for the members of the
SIGINT Group of the Collection Guidance Staff
to have continuing access, through appropriate
SIGINT channels, to NSA collection components
to facilitate more effective communication
between CIA intelligence analysts and. COMINT
collection specialists.
It is recommended that:
The Deputy Director for Intelligence direct
the Chief, Collection Guidance Staff, to take
measures, in coordination with representatives
The essence of the problem is access, not
indoctrination. If access can be gained., in-
doctrination will follow.
Comment:
If in fact a problem exists (and the report
cites no evidence that it does, only that "over-
lap between collection systems is much less desir-
able in the Free World,".and that "duplication of
requirements is likely to be a waste"), then the
of the Deputy Director for Plans, to reduce unneces- recommendation as restated. should. assist in its
sary duplication between COMINT and. human-source solution.
requirements on the Free World.
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Action responsibility rests with the CIA
SIGINT Officer, not the Deputy Director for
Intelligence. The personnel involved. happen to
be in the Intelligence Directorate, but the
arrangements to realize the recommendation will
have to be made between the CIA SIGINT Officer
and NSA.
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or Release 2002/06/18 : CIA-RDP85GO0105RO00100130012-7
No. 20 1~0. 20 Comment:
It is recommended that:
The Deputy Director for Intelligence, in
coordination with the Deputy Director for Science
and Technology, direct the Collection Guidance
Staff to advise the CIA members of the COMOR SIGINT
Working Group and of the COMOR on coordination of
CIA requirements in connection with SIGINT and multi-
sensor national reconnaissance operations.
The Deputy Director for Intelligence and the
Deputy Director for Science and Technology direct
their producing offices to assist the Collection
Guidance Staff in establishing coordinated
Agency positions on all overhead reconnaissance
requirements for the CIA members of COMOR and SIGINT
Committee working groups.
The real substantive problem in the area
addressed by this recommendation is how to get
COMOR, with its concentration on photography, out
of the SIGINT business. The report recognizes
this and notes, on page B-28, that the SIGINT
Working Group of COMOR "has no connection with
the SIGINT Committee of USIB. . . CIA management,
the USIB SIGINT Committee, and COMOR are all well
aware of this problem and are considering various
possible solutions."
Nevertheless, the recommendation would be
useful and appropriate if it was broadened.
Since the question is requirements, and since
requirements is the reason for being of the
Collection Guidance Staff, we believe that the
recommendation should be equally applicable to
all COMOR working groups, and all SIGINT Committee
working groups.
This recommendation as restated is the
complement, at the working group level, to
Recommendation No. 23, which is aimed at the
coordination of the Agency's position on prob-
lems coming before COMOR itself.
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 No. 23
It is recommended that:
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It is recommended. that:
The Deputy Director for Intelligence formu-
late and coordinate a CIA position on require-
ments for overhead reconnaissance in such a way as
to identify those disagreements which may require
resolution by higher authority.
The Deputy Director for Intelligence and the
Deputy Director for Science and Technology direct
their appropriate components to assist the Col-
lection Guidance Staff in establishing a coordi-
nated Agency position on overhead reconnaissance
requirements for the CIA member of COMOR, subject
to the review and direction of higher Directorate
authority. In the event of interdirectorate
disagreement that cannot be resolved by the Deput;
Directors, the Deputy Director for Intelligence
shall ensure that the issue is raised with the CIA
member of the USIB for decision (per Paragraph 9
of RR 51-9, 12 Jan 1965).
The restatement describes how the system that
has been evolved "to formulate and coordinate a
CIA position on requirements for overhead-recon-
naissance in such a way as to identify those dis-
agreements which may require resolution by higher
authority" now works. That is, the CIA Member of
COMOR contacts the appropriate components of all
Directorates (including DDP) to obtain the infor-
mation and advice necessary to synthesize an Agency
position on matters coming up in the interagency
COMOR forum.
The process involves a continuing series of
meetings starting at the working level in the
individual offices and working progressively up
the ladder until it culminates in an informal intra-
Agency meeting involving the Assistant Deputy
Director for Intelligence and. other senior com-
ponent representatives.
The present system does in fact alleviate the
problem of concern to the IG group. It enables
a CIA position to be developed out of the diversity
of needs and views of the interested components,
and it provides for resolution at the appropriate
level of the inevitable component differences.
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No. 23
Comment:
No. 23
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 c
No. 24
It It is recommended that:
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ApprovecvorRelkawo.20 2106118: CIA-RDP85GO0105R000100130012-7 Comment :
The Deputy Director for Intelligence and the
Deputy Director for Science and Technology instruct
the chiefs of their substantive divisions to assume
these responsibilities:
a. He should validate all requirements coming
from his division, certifying that the information
is needed. to fill a gap in the national intelli-
gence,, is not already available, and is not likely
to be collected by a mechanism other than the one
to which the requirement is addressed.
b. He should stimulate personal communication
between his analysts and representatives of appro-
priate collection mechanisms both before and after
a requirement is written and delivered in order
that: (1) analysts may learn better how to word
their requirements in a manner appropriate to the
mechanism; (2) analysts may supply prompt and
efficient operational support; and (3) analyst and
collector may work together as a team, with prompt
feedback from the latter and prompt evaluation from
the former.
c. He should be prepared to certify that the
analytical resources of his division are sufficient
to deal with the foreseeable answers to all ques-
tions being asked by it at any one time and. to
produce useful finished intelligence therefrom.
d. He should ensure that informal requirements
and evaluation requests are recorded as soon as
possible for purposes of managerial control.
e. He should review all requirements issued
by the division at least twice a year to ensure that
they are up to date, that they concentrate on the
most important gaps in the division's information,
and that they are receiving attention in accordance
with the relative priorities among the various sub-
jects within the division's competence.
(continued, on next page)
The Deputy Director for Intelligence and the
Deputy Director for Science and Technology charge
the Chief, Collection Guidance Staff, in collabo-
ration with the Collection Guidance Advisory Group,
with devising and implementing practical measures
to assist the directors of the substantive offices
Recommendations No. 24 and No. 25 are essen-
tially the same and should be combined. Each
charges a different management echelon in the DDI
and the DDS&T--division chief and. office chief--
with the need to translate their responsibilities
for management of the collection requirements needs
of their components into action.
and. their division chiefs in carrying out their The problem with the two recommendations is
responsibilities for control, validation, and. re- that they are unduly specific in the absence of any
cording of all requirements; for communication on machinery to make the actions called. for work. For
needs with collectors and the Collection Guidance example, telling a division chief that he must
Staff; and. for periodic audit of office and division validate all requirements coming from his division
performance in the field of collection guidance. without considering what needs to be done to help
him do this invites a pro forma response that has
no effect on the problem.
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The restatement is intended to set the stage
for a methodical attack on the problems of manage-
ment raised by the two original recommendations.
It is an old axiom that an organization does well
only those things the boss checks. There is no
system now in being that enables the division chief
or the office chief to check systematically the
performance of his component in the field. of col-
lection requirements. Just "making people respon-
sible, dammit" is not going to solve the problem.
Working together the Advisory Group and. the
Collection Guidance Staff can devise those measures
and procedures that enable the managers to check the
performance of their units, perform the reviews at
the times and in the detail necessary, and still
meet their other responsibilities.
This is not a program that can be completed
overnight. Like the other activities called into
being by the IG report, it will take time and. con-
centration to make the managers more aware of their
responsibilities in this area and more inclined to
meet these responsibilities head on. The recommen-
dation as restated represents a practical way to
start moving in the right direction.
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f. He should ensure that analysts are fully
informed about all elements of the collection re-
quirements system, how they relate to one another,
and how they are related to the division's work.
No. 25
It is recommended that:
d. He should compile, not less often than
twice a year, an extremely brief list of the most
important gaps so identified., and arranged in
order of their importance to his office. This
list could serve the double purpose of keeping
top management systematically informed and. of
forcing the chain of command below it to give
hard thought to hard subjects now often sloughed
off onto committees and. into catch-all catalogues.
The Deputy Director for Intelligence and. the
Deputy Director for Science and Technology instruct
the directors of their substantive offices to assume
these responsibilities:
a. He should keep himself generally aware of
all the requirements levied by his office, as to
type, quantity, appropriateness to the various col-
lection mechanisms, and expected effects upon the
work loads and production schedules of his office.
b. He should set priorities among the gaps
in information which most affect the work of his
office and discuss these priorities with represen-
tatives of the various collection mechanisms.
c. He should keep sufficient watch on the
requirements of his office, as expressed either by
his divisions or by USIB committees, to be able to
assure himself and higher authority that his most
important gaps have been cleaxt y identified and
expressed in practical terms to the collectors.
Among other things this means assuring himself that
methods appropriate to his office have been devised
for screening out the trivial, the impractical, and.
the inappropriate.
e. He should use the knowledge of gaps thus
acquired to develop the ability of his office to
cooperate with the collectors in the fields of
collection guidance and operational support, as
distinct from the mere listing of requirements
or gaps. This would especially mean encouraging
subordinates to propose practical suggestions for
acquiring the information desired.
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Comment:
No. 27
The Deputy Director for Intelligence, in coor- The Director of Training, under the general
dination with the Deputy Director for Science and. guidance of the Deputy Director for Intelligence,
Technology and. the Deputy Director for Plans, arrange the Deputy Director for Science and Technology,
briefings on the collection guidance system for and the Deputy Director for Plans, ani with the
analysts in the Agency's intelligence production assistance of the Chief, Collection Guidance
offices. Staff, take the measures necessary to increase
training of Agency personnel on the collection
requirements process in line with the IG report's
conclusions and. recommendations, insofar as they
are approved. and. adopted..
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Implementation of this recommendation
will over time assist in developing a better under-
standing of the collection requirements process and
the responsibilities of the producing offices in
making it work.
The report calls for "briefings by CGS officers
with the assistance of representatives of the DCS
and the Clandestine Services." We believe that the
long-term and continuous undertaking implied. by the
recommendation is more properly a function of the
Office of Training, operating under the technical
advice of the Collection Guidance Staff. It would
be an improper use of manpower, given the pressing
need to "mitigate the deleterious effects of the
Information Explosion," to turn collection guidance
specialists into briefers and. trainers.