JOINT STUDY GROUP RECOMMENDATION 21 - 23

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP86B00269R000200060111-0
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 10
• Document Creation Date: December 15, 2016
• Document Release Date: September 4, 2003
• Sequence Number: 111
• Publication Date: March 30, 1961
• Content Type: MF

Approved For Rele 2003/0'I2J''` I -RDP86B00269R0$St00060111-0
30 March 1961
MEMORANDUM FOR: (See Distribution)
SUBJECT : Joint Study Group Recommendations 21 - 23
1. The attached paper represents an attempt to interpret and
develop the sense of Joint Study Group Recommendations 21 - 23 in
the light of existing administrative and organizational realities.
It does not necessarily represent, in whole or part, the views of
the Assistant to the Director for Coordination, or of his staff.
I hope, however that it will serve as a starting point for considera-
tion of these recommendations, and how they may be translated into
community wide actions.
2. I hope we can discuss this paper, at least in general terms,
when we meet on Monday, 3 April.
25X1
ATTACHMM:
Draft Paper on Recommendations 21 - 23
DISTRIBUTION:
Mr. R. Kenneth Oakley, INR/ICD, Dept. of State
Col. Donald W. Bernier, ,A091
Cmdr. C. D. Everhart, =I
Col. .Lowell May, AFCIA
Mr. Paul Borel, OCB/CIA 25X1
Ill
Mr. William Smith, 050, D
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For ReleYse 2003/09/29 : CIA-RDP86B00269R00'00060111-0
DRAFT - TMN
29 March 1961
1. An examination of that part of the Joint Study Group report
devoted to requirements, as well as the text of Recommendations 21,
22 and 23, leaves some uncertainty as to the precise nature and function
of the proposed "central requirements facility," and its identification
with or relationship to the "interagency clearing house," and to the
group of "top quality experts" "high level, experienced and fully
cleared professionals" mentioned in the report.
2. It seems probable, however, that the Joint Study Group recog-
nized two broad. problem areas. The first area relates to the duplica-
tion, overlap, and multiplicity of requirements, and to the absence of
any unit or focal point with complete records or knowledge of the whole.
3. The second broad problem area is that of managing the intelli-
gence community's collection activities and resources as a whole. As
the report states "The Joint Study Group believes that the described
individual efforts of the members of the intelligence community to handle
their own requirements and evaluations are inadequate to properly co-
ordinate the collection activities of the community, and that the USIB
must, as a part of its management responsibility, require that coordina-
tion be done on a community wide basis..." The high level, experienced
professionals are to be "kept apprised of new assets and be informed
about every form of collection resources."
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For ReIMse 2003/09/29 : CIA-RDP86B00269R0100060111-0
4, A brief (and simplified) review of the sequential steps by which
a requirement is developed, levied, and acted upon under existing pro-
cedures may be useful in clarifying and defining these two broad areas
of concern and the J9G recommendations related thereto.
a. Before a requirement can be generated, one of the analysis
or production offices must define and initiate work on a research
project.* The procedures and provisions of NSCID's for coordina-
tion of intelligence production are, in fact, fundamental steps
in the coordination of requirements. IAC-D-5O/5.1, 11 June 1959
discusses this aspect of coordination of requirements in detail.
b. After initiation of work on a project, the analyst finds
gaps in the information which he needs to carry on his research.
The first step in obtaining the information he lacks is to sees it
elsewhere than in his own files, that is to say, from the various
organizations and facilities which record and file information and
data on various subjects. The responsibility for seeking the
information he needs from available reference and information re-
positiories in Washington is, in the first instance, and primarily,
a responsibility of the analyst. We do not believe that, in its
statement "The first effort of such a clearing house would naturally
be to check the available information in OCR and the usual public
repositories and ensure that the required information is not al-
ready available in Washington," the JJG meant to relieve the
analyst of this fundamental responsibility.
* Such a project may be a full fleged estim*tive paper, at one
extreme, to the maintenance of current records (e.g., of the status
of foreign airfields) at the other.
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For Rel a 2003/09/29 : CIA-RDP86B00269R0O'117~00060111-0
c. Having ascertained that the information he needs is not
available from the various reference facilities and repositories,
the analyst reduces his need to writing. The "requirement" is now
born. Usually the analyst's statement of need is accompanied by
background and explanatory material so that it is comprehensible
to a collector who may not be conversant in detail with the
particular subject.
d. The determination of which collection facility should be
given responsibility for actually obtaininii the needed information
is accomplished in stages. Frequently the analyst himself, based
on his own knowledge, makes a determination and tailors his re-
quirement to the collection facility he has chosen. This parti-
cularly occurs when the subject matter on which the analyst is
working falls with the categories of his agency's responsibility
for overt collection under N6CID No. 2. The second step in the
determination of the collection facility to be used is made by
the requirements unit belonging to the analyst's agency or offic.
These requirements units have, or should have, a thorough knowledge
of the capabilities and limitations ofthe various collection faci-
lities available in the community, and their determination of the
appropriate collector is usually the one finally adopted.
e. The requirements units in State, Army, Navy, and Air
Force receive all requirements origi4nating within their agencies.
These that can appropriately be met by collection facilities of
their own agency are prepared and sent to the field. Those that
can only appropriately be met by the facilities of another agency
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For ReI'dse 2003/09/29 CIA-RDP86B00269R0100060111-0
are sent to that agency. Each of these requirements units also
determines
receives requests from the other agencies for collection,
whether or not such collection should be undertaken, and if so,
issues the necessary instructions. In CIA, both production and
collection elements have requirements units. Those units in the
above.
production elements perform the functions indicated in d.,
and in Fes, deter-
Those units in the collection elements of CIA,
mine whether or not a given requirement should be met by their
respective collection elements, and control and administer the
levying of the requirement.
The existing requirements units perform functions which are
5. erent in the administration and direction of the
essential to and inh
component or office of which they are a part. We do not believe,
therefore, that any "central requirements facility" or "inter-agency
of the existing
clearing house" can replace or carry out the functions
units; although it may be able to assit these units in
requirements
meeting their responsibilities with a consequent reduction in the
numbers of personnel required in these units.
Each of the existing requirements units operated within a limited
6.
and specific area. It is thus Possible, for example, for identical
different
requirements to be levied in sequence for overt collection by
a encies, since there is no convenient mechanism by which one agency
g been levied on any
can determine if a given requirement has already
on facility other than its own. For those subject areas in which
collects cations, trans
there is an overlap of interest, (for example, telecommuni
Cation, industry, science, technology) duplication of requirements
por
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For Release 2003/09/29 : CIA-RDP86B00269R0OU500060111-0
and of collection effort is specially liable to occur. The proposed
"inter-agency clearing house" would, inter alia, provide a means by
which such duplication could be identified and eliminated.
7. Recognizing that the existing requirements units must continue
to function, and assuming that requirements can be subjected to control
by punch card or other machine methods, we would suggest the following
mechanism for the "inter-agency clearing house": (a) all requirements
originating in one agency but addressed to another agency for collection,
would be sent to the second agency through the clearing house, for re-
cording and indexing; (b) all requirements originating in the production
offices of CIA would be processed thro the clearing house for re-
cording and indexing to the selected collection facility; (c) require-
ments originating in any agency (except CIA) and levied for collection
on a facility of that same agency would not be sent initially through
the clearing house. However, in all such cases, a copy of the require-
ment would be promptly furnished to the clearing house for record and
index purposes. In addition, inter-agency arrangements will be necessary
so that the clearing house can be informed of the fulfillment, cancella-
tion, or other changes in the status of requirements. JSG recommendation
22 proposes that CIA,/OCR provide the reference facility for the "new
central requirements facility." We interpret this as meaning that, in
addition to library and information reference service, OCR would main-
tain a central record of requirements, generally in accordance with the
procedures outlined above, using its machine facilities and resources
as necessary for the purpose. The record and index facility should be
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For Rel se 2003/09/29 : CIA-RDP86B00269ROW200060111-0
readily available to analysts and to requirements units, for the purpose
of identifying requirements, and the status thereof, which may exist
on any given subject of interest, based upon the Intelligence Subject
Code.
8. If organized as briefly sketched above, the clearing house
should provide on short notice information on: (a) the existence(and
details) or non-existence of requirements on any given subject; (b)
the status and details of all existing requirements on a subject, area,
originating office, or collector basis, or any combination of these.
The clearing house or record facility operated by CIA/OCR would ham
no authority itself or altering or rejecting a requirement or for
determining the collector upon which a requtr=ent would be levied.
Its function would be that of providing a central and comprehensive
source of information on requirements which have been prepared and
levied upon collection components. The decision as to which collector
would be requested to fulfill a requirement would rest (as in the
majority of cases it does in practice today) with the requirements unit
of the originating office or agency. Requirements units in production
offices should be encouraged to consult directly with collectors with
regard to the latter's capabilities, limitations, and problems, and
to arrange, as appropriate, direct contacts between analysts and
collection personnel. Nevertheless, the information available from
the OCR clearing house facility would be indispensable to the top
level professional group recommended by J. We do not believe that
the J intended that this group of top level experts would review indi
vidually and pass upon every requirement emanating from the elements of
the community.
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For Relee 2003/09/29 : CIA-RDP86B00269R0b200060111-0
9. Within the last five years there has emerged a new type of
requirement with which the existing require=mts system is unable to
cope. This type of requirement is usually related to a high priority
intelligence problem, and is us.lly (although not necessarily) concerned
with science and technology. It has one or more of the following
characteristics: (a) it is of interest to two or more agencies; (b) no
single collection facility can fulfill it; (c) several or most collection
facilities can contribute to it fragmentar1 y; (d) no combination of
existing collection facilities can meet it adequately; (e) it requires
extensive background briefing and explanation to be understood by
collectors. The burden of this type of requirement falls heavily upon
the clandestine services, upon whom it is usually levied in the absence
of any identifiable oveftcapability to fulfill it. On occasion this
type of requirement is levied indiscritely on all collection facili-
ties. We believe the JSG had in mind this type of requirement as the
principal area for consideration by the group of high level, experienced
professionald drawn from each agency.
10. This professional group through their collective knowledge of
all collection resources, could identify and integrate the contribution
each collector might make toward meeting a given requirement of this
kind. A recent experiment concerning requirements on operational IC4's
sponsored by the ID/I may be illustrative of the kind of analysis and
allocation of effort which the group could make. Through its knowledge
of capabilities and limitations, the group could undertake or sponsor
studies or collection aides designed to assist certain collectors
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 Approved For Reler a 20153/09/29 1 CIA-RDP86B00269RO 00060111-0
to increase their capability to meet a requirement. The Scientific
Intelligence Collection Aids issued by 06I are examples, oriented toward
the clandestine services, of this type of activity. Thirdly, the
group could identify needs which could not be met by any existing
A
collection mechtaism, and hence would require the development of entire-
ly new collection techniques or devices. Similarly, the group could
assess the value of a proposed new technique or facility, weighing it
against present capabilities. On the basis of data supplied by the
proposed OCR facilities the group could identify areas of weakness in
existing collection capabilities and recommend reallocation of resources
and effort, In carrying out the activities outlined above, the group
would use the services, as appropria1 of such existing USIB committees
as SIC., GMAIC, JAEIC,, etc. It should also be noted that the present
responsibilities and functions of USIB committees concerned with specific
collection activities (e.g. IPC,
would not necessarily be altered.
COKIRT, etc.)
11. The JSG did not indicate or recommend any organizational loca-
t-
tion for the inter-agency group of top quality experts. There a number
of alternative locations for this group, of Which the following might
be mentioned: (a) the group could function under the general super-
vision of the DCI's Coordination Staff; (b) the group could be consti-
tuted as a committee of USIB (c) conceivably the group, as the top
level advisors to USIB on requirements and collection matters, could
be constituted as a committee, with the existing DRIB committees concernei
with specific collection facilities (I.PO,
25X1
25X1
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0
 ELINT, CCPC, etc.) becom3 -q its strbcomm_ittees. It is cer`' 1n, hoverer,
Approved For Rele 2003/09/29 : CIA-RDP86B00269R0010060111-0
that if this group is to bring about the improvements contemplated by
the Joint Study Group, it must be composed of the very best talent,
initiative, and competence available in the intelligence community.
Approved For Release 2003/09/29 : CIA-RDP86B00269R000200060111-0