MANAGEMENT STAFF STUDIES

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP57-00042A000100150001-2
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 110
• Document Creation Date: December 12, 2016
• Document Release Date: July 15, 2002
• Sequence Number: 1
• Content Type: STUDY

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M A N A G E M E N T STAFF S T U D I E S
OFFICE OF REPORTS AND ESTIMATES
Regional Divisions
National Intelligence Survey Division
Map Division
Publications Division
Administrative Staff
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MANAGEMENT STAFF STUDY OF THE REGIONAL DIVISIONS
OFFICE OF REPORTS AND ESTIMATES
Findings:
The competence of the regional divisions of the Office of Reports and
Estimates is contingent on:
1. Promulgation of policy which will define a production plan,
responsibilities of the regional divisions to engage in basic intelli-
gence research, and the responsibilities of the regional divisions for
coordination of national intelligence. (See Tabs 1, 2, 2A, and 3.)
2. Provision of a requirements organization which will insure speedy
but coordinated action on CIA requirements for information. (See Tab 2C.)
3. Integration of CIA activities with clarification of the support
responsibilities of one component to another. (See Tabs 1, 2, and 2A.)
4. Augmented and improved collection support. (See Tabs 2E, 2F,
2H, and 2G.)
5. Internal realignment of functions, organization, staffing, and
procedures of the Office of Reports and Estimates; provision of orien-
tation and guidance for the regional analysts. (See Tabs 2, 3, and 4.)
Recommendations:
The combined resources of the Office of Reports and Estimates, of the
Coordination, Operations, and Policy Staff, and of the Management Staff should
be directed toward the objectives listed above. Specific suggestions of the
Management Staff for improvement of the operations of the regional divisions of
the Office of Reports and Estimates are contained in Tab 2. The Management Staff
recommendations for organizational and functional changes are contained in Tab 2D,
while additional suggestions for improvement of the requirement activity are con-
tained in Tab 2C. Recommendations and plans for improvements offered by the
Assistant Director for Reports and Estimates, by Chief, Coordination, Operations
and Policy Staff, and by Assistant Director for Operations are contained in Tabs
3, l+-, and 5, respectively.
Basic Documents Relating to the Study:
Tab 1 - Summary of the Management Study.
Tab 2 - The Management Study with Attachments A through H.
Tab 3 - Comments of the Assistant Director for Reports and Estimates
on the Study.
Tab 4 - Comments of the Chief, Coordination, Operations and Policy Staff
on the Study.
Tab 5 - Comments of the Assisj .nt Director for Operations on Attachments
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ce lviemoranaum ? UNITED STATES GOVERNMENT
: Acting Executive
DATE: JUL 14 1950
FROM : Management Officer
SUBJECT: Management Staff Study of Regional Divisions of Office of
Reports and Estimates
1, A four-month Management Staff study of ORE Regional Divisions
disclosed conclusive evidence of the need for definitive clarification
of authorities and responsibilities delegated to CIA for the coordina-
tion and production of national intelligence. The policy actions
required relate to the following major problems:
at Definition of the Program of CIA and, More Specifically
of its Major Production Components, ORE and OSI. This clarifica..
Lion of program should provide for:
(1) Agency-level determination of a comprehensive production
plan for the production and coordination of national intelli-
gence., with both long-range and short-term. objectives and
with specification of CIA responsibilities in relationship
to those of the other intelligence agencies of the Federal
Government.
(2) Clarification of responsibilities for basic research
support within the intelligence cosnity, such assignment
being practically related to the needs of the users of this
support and to the budgetary and staffing resources for this
basic research activity within the designated supplyigg agencies,
b. Definition of Authorities and Responsibilities Assigned
to CIA for the Coordination of National Intelligence, Is CIA to
be a true coordinator, or is its product to remain the object of
coordination exercised by the other intelligence agencies? CIAts
responsibilities and its authority to coordinate (Does coordination
include direction?) each phase of the intelligence process (i,e.,
the planning, the collection, the production, the reconciliation
of substantive disagreements, and the issuance of national intelli-
gence) should be specifically defined.
c. Development of Policies and Procedures to Insure Speedy,
but Coordinated, Action on CIA Requirements for Information. This
problem is described in detail in my memorandum to Chief, COAPS, dated
25 May 1950. Management Staff recommendations are contained in my
memorandtu to you., dated 3 July 1950, entitled, "Proposed Plan for
Realignment of Certain Agency Functions",
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d. Integration of CIA Activities. In the interests of
economy and efficiency, duplication of activity within CIA must
be kept to a minimum. The support functions of each of the CIA
components to each other must be clearly stated. This is particularly
needed since the activation of OPC. The operational program of
OPC introduces need for support rich does not specifically fall
within the intelligence mission of the Agency.
e. Internal Realignment of ORE Functions, Organization,
Staffing, and Procedures. Provision should be made for;
(1) Direction of ORE effort toward primary responsibilities.
(2) Facilitation of internal coordination of its intelli-
gence activities.
(3) Guidance to analysts on best methods and techniques
to be employed in intelligence analysis.
2. The findings and recommendations resulting from this Management
Staff study of ORE Regional Divisions are attached for your information
and such action as may be required in the solution of the problems
indicated and in the implementation of recomendations for improvement.
The full report is contained in action memoranda to responsible officials,
as follows:
a. Memorandum to AD/ORE, entitled, "Management Study of
Regional Divisions of ORE"*
b. TAB A - Memorandum to ADORE, entitled "Factors to be
Reconciled Between the NIS Program and the Basic Economic Research
Activity of Eastern Europe Division, ORE".
c. TAB B - Memorandum to AD/ORE, entitled, "Reaction of D/NEA
to NIS studies".
d. TAB C . Memorandum to Chief, CORPS, entitled, "Information
Requirements".
e. TAB D.- Memorandum to Executive, entitled, "Proposed Plan
for Realignment of Certain Agency Functions".
f. TAB E . Memorandum to Chief, COAPS, eta al., entitled,
"Suggestions for Improvement of Collection Facilities Resulting
from Management Staff Studies of ORE and OSI".
g. TAB F ? Memorandum to AD/00, entitled, "Suggestions for
Improvement of 00 Service Resulting from Management Staff Studies
of ORE and OSI".
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h. TAB G - Memorandum to.,AD/0S0, entitled, "Suggestions
for Improvement of the OSO Collection Service Resulting from.
Management Staff Studies of ORE and OSI".
i, TAB H - Memorandum to AD/OCD, entitled, "Suggestions
for Improvement of OCD Service Resulting From Management Staff
Studies of ORE and OSI". 25X1A9A
cc - AD/ORE
Chief, CORPS
Budget Officer
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Y Y
July 14, 195?
Assistant Director for Reports and Estimates
Management Officer
Management Study of Regional Divisions of ORE
1. Findings of the Management team resulting from a survey of
ORE regional divisions during the past four months, which are indicative
of possible improvements in ORE operations, follow under the six activity
headings indicated in the succeeding paragraphs. Some of the findings
which have been discussed verbally with you or members of your staff
are repeated for purposes of clarification and integration. Since this
report is limited to those findings which indicate need for improvement
in the ORE production effort, it should be read with the knowledge
that ORE has developed, within the past three years, into a full-fledged
intelligence production component of the Federal government with a
potential for achieving distinction in the intelligence community.
It has recruited, trained, and developed an outstanding corps of intelli-
gence specialists. It has consolidated existing intelligence data
into firm integrated intelligence summaries which are being currently
maintained. ORE officials and analysts deserve recognition for these
achievements.
2. Production
a. Findings
(1) The ORE regional analysts were practically unanimous
in expressing a desire for more specific direction of the
production effort. The kinds of direction desired can be
discerned from a review of the following typical comments:
(a) What intelligence does the Director need to
be personally cognizant of the world situation? In
what form and how frequently does he wish this intelli-
gence?
(b) Who are the "policy makers" to whom the product
is directed? What are their particular needs, their
capabilities to study the situation, or their idiosyncrasies
which must be taken into account at time of production?
(c) It would be most helpful to know the identity
of a particular requester, the manner in which he intends
to use the intelligence, and the organizational level
at which the intelligence will be used.
(d) What are the support responsibilities of ORE?
for basic research? to working levels of other intelligence
agencies? to OPC and OSO for operational as opposed to
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(e) How much production assistance can ORE expect from
the other intelligence agencies? Can ORE assign production
studies to the other intelligence agencies? If so, how
can it insure compliance? How far can ORE go in duplication
of activities of the other intelligence agencies? in plugging
intelligence gaps resulting from the inertia, lack of staff,
or incompetence of other intelligence agencies?
(f) Should ORE report instances where implementation
of U.S. policy endangers US national security? or where
U.S. activity abroad deviates from U.S. policy to the
detriment of U.S. national security?
(g) How fully should an intelligence report or estimate
be documented? Should meaningful comparisons be included?
Should documentation be included in the report, in an appendix,
or retained in division files?
(h) What factors influence presentation of an estimate
as a weekly item, as an Intelligence Memorandum, as an ORE?
Under what circumstances should an estimate be coordinated
with the intelligence agencies represented on the IAC?
(2) Coordination, substantive review, and editing appears
to consume a disproportionate share of ORE production effort.
Also, each additional handling adds a day or more to the production-
processing which may detract from the current value of the
estimate. Moreover, the total process discourages the analyst
and tends to dull his enthusiasm and initiative. This criticism
was leveled at each of the three levels of coordination and
review, namely antra-divisional, inter-divisional, and inter-
agency. Typical complaints expressed by analysts are:
(a) Division review is time-consuming and may result
in publication of estimates in which the originating
analyst does not concur. (This is particularly true of one
division where nine internal reviews are made prior to
submission to D/Pub).
(b) Few criteria or guides exist to which the analyst
may turn for help in writing an acceptable first draft.
Criteria as to style, format, language, punctuation, and
substantive coverage are needed. The analyst is not told
"why" his draft was not acceptable so that he may correct
his errors and develop his drafting skill to a point where
he can produce intelligence which can be published as is.
(c) It is impossible to get a firm answer to drafting
questions of even minor importance, e.g., Should Satellite
(satellite) be capitalized? Each reviewer exercises his
own Judgment.
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(d) Each reviewer or editor feels it his duty to
rewrite the paper. This, in turn, usually results in
a second rewrite by the originating analyst.
(e) Desk analysts feel that editorial and functional
reviews often exceed the jurisdiction of the reviewer.
(f) Considerable analyst time is consumed in educating
the reviewer and adds little or nothing to the quality of
the estimate.
(g) D/Pub tendency to exploit the news value of the
report and to achieve brevity impairs the factual and
intelligence integrity of the estimate.
(h) While D/Pub is functionally responsible for
assignment and coordination of production action, the
regional divisions report that production requests are
also received from Global Survey Division, from Inter-
national Organization Division, from Economic Division, and
from other regional and functional divisions of ORE, without
prior coordination with D/Pub. The divisions are most
happy to comply with all such requests and generally do
without protest. However, such action places a severe
workload strain on the regional divisions and disrupts
normal production activity.
(i) Clearance of estimates with agencies represented
on the IAC is unduly lengthy and time-consuming. In many
instances reports have been rewritten twice to bring them
up-to-date during the six to eighteen months taken for such
clearance. Informal agreement reached at the working level
is often nullified at time of formal coordination by higher
eschelons of the coordinating agency. In some instances,
exception is taken to an estimate purely on the grounds
that the coordinating agency does not have enough knowledge
of the situation to concur. In other instances, rhetorial,
rather than substantive issues, consume valuable coordination
time.
(3) Little thought has been given by regional analysts to
methods employed in intelligence evaluation and estimating.
(a) Checks on the accuracy of estimates have been
achieved through coordinating with interested regional
and functional analysts of other desks and divisions and
through substantive review by Intelligence Control. (It
might be parenthetically stated that the effectiveness of
Intelligence Control varied considerably, such variance
being contingent on the proximity of the control officer
to the area picture, on the analytical and substantive
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competence of the Control Officer, and on the strength
and objectivity of the Division Chief in his role of arbi-
trator.) Little or no thought has been given in the
regional divisions to development of objective checks on
estimates through scientific methods such as content
analysis, which might confirm or question estimates
based on impressions.
(b) Also, little attention has been given to determining
the best methods for daily analysis of the incoming informa-
tion and subsequent indoctrination of analysts in the accepted
methodology. While it is recognized that considerable freedom
must be enjoyed by the analysts to compensate for human
differences, the survey disclosed sufficient evidence to
indicate that this phase of the intelligence operation
could be improved. The survey disclosed that three
unrelated ORE actions have forced method changes which
have a seemingly beneficial effect. First, ORE administra-
tive injunction on size of files has forced considerable
consolidation of information. Secondly, the preparation
of the situation reports forced consolidation of informa-
tion and the preparation of a synthesized current picture
of the area in question. Thirdly, the working paper
maintains on a current basis the intelligence picture drawn
together in a situation report. It was further noted during
the survey that a direct relationship existed between
the competence of area coverage and degree of selectivity
employed in retention of information in the analysts'
files. Smaller files generally paralleled fuller evaluation
and synthesis of the intelligence on the area.
(4+) The working paper has emerged as a palliative agent
for the problems presented in paragraphs (1), (2) and (3), above.
With the working paper, the Division could establish policies,
where nor-existed; it could exempt itself from prescribed
coordination; and, it provided a means for organizing the
mountains of heterogeneous data received daily. The working
paper has been most useful and helpful to ORE. It has presented
a plan for consolidation of data/, it has given the untried
intelligence analysts an experimental area in which to become
oriented, to develop and to practice and improve their skills
in intelligence analysis, evaluation, and presentation. The
questions now arise as to whether:
(a) the usefulness of the working paper is declining?
(b) its existence obscures the more vital task of
producing high-level national intelligence?
(c) the intelligence contained in the working paper
is sufficiently utilized to justify the effort expended?
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(5) A close relationship appears to exist between ORE
divisional breakdown and the subject-matter coverage of intelli-
gence estimates. In some instances the reflection of organizational
jurisdiction in estimates has adversely affected the completeness
of the estimate, e.g., a critical situation arising in one area
may be reported by that area specialist and the significance
of the action to affairs of that area and to U.S. security will
be indicated, with no mention being made of the significance
of that action on other areas of the world. Analysts frankly
admitted that outlines for estimates were designed to eliminate
need for coordination with other divisions. Also, in the prepara-
tion of daily and weekly items, care was taken to confine reporting
and estimating to their own areas and to those other areas
where cordial and cooperative relationships existed.
(6) ORE intelligence on the Soviet and its relationships
with the rest of the world has probably been more severely
restricted by organizational influence then the intelligence
on the non-Soviet areas. Responsibility for reporting Soviet
intent has been placed with D/EE, while responsibility for
estimating Soviet capabilities for other than Russia proper
and the Satellites has been placed in the other ORE regional
divisions. EE analysts feel they cannot fulfill their responsibi-
lities properly without maintaining cognizance over capabilities
of other areas. Thus, one finds in D/EE a group of analysts
assigned on a world-wide area breakdown for duplicate coverage
of the rest of the world. It can also be stated that this
dispersion of effort within EE leaves the total coverage of
Russia proper to one analyst, which would appear to be insufficient
coverage. At time of production, when Soviet influences or
intents are being appraised, a deadlock can easily develop
between D/EE and another regional division as to jurisdictional
prerogatives. In some cases, estimates are killed because issues
cannot be resolved. This situation is particularly acute in
the areas of recent communist control, such as China and
Eastern Germany. The analysts of EE advance one logical argument
for their encroachment on responsibilities of other areas,
namely, the situation must be presented from a Soviet viewpoint,
which is not present in the other divisions. Until these
jurisdictional questions are settled, incomplete estimates will
continue to be published, many required estimates will be
killed prior to publication, and valuable production effort will
be wasted in futile haggling between divisions.
(7) Intelligence coverage of Africa represents another serious
division of responsibility. The African Branch of D/NEA is
concerned with only the economic aspects and phases of intelli-
gence activity and intelligence production. Political aspects
for these countries under the jurisdiction of the African
Branch are handled by the country whose decisive policies govern
colonies within the continent of Africa i.e. the Portuguese
colonies governed by the country of Portugal within the Western
European Division and the British colonies whose activities are
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(8) A wide variance was noted in the amount of pressure
exerted in different regional divisions for intelligence
production. The analysts of Latin-America Division admitted
that they would welcome more requests for intelligence and
would enjoy working under more pressure. On the other hand,
analysts of EE/Econ Branch were putting in many hours of
voluntary overtime to meet the continuous pressure of
deadlines and requests. There appears to be need for equalizing
these production pressures through functional or organizational
adjustments.
b. Recommendations: It is recommended that:
(1) ORE policy together with implementing procedures be
developed, in conjunction with COAPS when necessary, to clarify:
(a) Substantive content of estimates in relationship
to user, production vehicle to be employed, documentation
desired, and other content obscurities.
(b) Support functions of ORE regional divisions.
(c) Relationships with agencies represented on the
(2) Production control, coordination and review responsi-
bilities be clearly defined, established, and enforced. A style
manual presenting ORE policy on style, format, language, punctua-
tion, and substantive coverage be prepared for use by all ORE
analysts and editors. A training program be established which
will facilitate the initial production of intelligence sufficiently
finished to permit immediate publication and thereby eliminate
the present practice which condones the rewriting of the intelli-
gence by editorial specialists.
(3) Research and experimentation be conducted within ORE,
with regional division participation, to develop and to utilize,
new and improved techniques and methods for:
(a) Checking the validity of intelligence estimates.
(b) Evaluating and integrating the daily incoming
volume of information into meaningful intelligence.
(4+) In conjunction with recommendation (3) (b), above,
the position of the working paper in the ORE production effort
be defined in terms of:
(a) amount of time to be employed in this type of
production
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(b) purposes of the paper
(c) manner in which the paper will be used.
(5) The-functions, organization and procedures of ORE
regional and functional divisions be redefined to:
(a) provide ease of coordination within ORE
(b) insure completeness of estimates
(c) relate organization and staffing to national
security needs
(d) equalize production workload among producing
components.
c. Comment: The proposal of interested ORE officials that
ORE organization, functions, and program be reoriented to the
present-day world situation appears to have considerable merit
and might greatly enhance ORE's production activity. It is
recommended that a plan reflecting this proposal be drafted
immediately for discussion with the Executive, COAPS, and
possibly the Director. The Management Staff will render any
assistance you may desire in drafting the plan.
3. Basic Research
a. Findings
(1) Wide variance was found in the amount of basic research
being conducted within the regional divisions of ORE. D/WE
carefully refrains from any type of basic research. D/LA and
D/NEA believe they must continue to engage in basic research
to about the same extent as is presented in the Situation
Reports, while Eastern Europe is engaged in full-scale basic
economic research. There appeared to be unanimous expression
of need for basic research facilities. Presently, the ORE
regional analysts are unable to rely on State Department and
other governmental basic research facilities because:
(a) ORE analysts have no directive power to insure
acceptance of projects by these agencies or, if accepted,
that they will comply with the request within necessary
deadlines.
(b) These agencies do not have sufficient staff
for the intensive coverage required by ORE.
(c) These agencies do not have access to all the
intelligence materials available to ORE so are not
able to present as accurate a picture as ORE might
desire.
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(2) The NIS program has not been designed for ORE regional
needs and the absence of coordination between the NIS and ORE
regional divisions has vitiated the usefulness of this product.
A discussion of the unreconciled factors between basic economic
intelligence coverage of D/EE and the NIS program is attached
as Tab A. Moreover, the NIS studies thus far completed have been
found by ORE regional analysts, to contain inaccuracies and to
be incomplete. A discussion of D/NEA reaction to the NIS studies
covering its area is attached as Tab B.
(3) If production requests levelled on D/EE for intelligence
on Soviet economy are to be accepted, ORE has no alternative
but to support a fairly large basic economic research activity
for coverage of the Soviet economy.
b. Recommendations It is recommended that:
(1) A plan be drafted whereby NSC authorization will be
provided for the basic economic intelligence activity now under-
way in D/EE.
(2) The basic economic coverage of the Soviet include all
areas under Soviet influence which contribute to the Soviet
economic potential and all such activity be in one organization
to obtain full utilization of industrial specialists. (Note -
During the course of the survey, a proposal for including coverage
of China and Eastern Germany in D/EE economic branch activity
was presented to Chief, D/WE, and Chief, D/FE.)
(3) COAPS intercession be requested to obtain better service
from OIR of State Department on basic research requirements,
and greater effort be expended to utilize the facilities of
the Department of Defense.
(4) The facilities of other non-intelligence government
agencies be employed to assist in providing basic research.
Where reimbursement is required, the project be submitted to
the Project Review Committee. (Note - It was suggested during
the survey that a project be formalized to utilize foreign trade
statistics maintained by the Department of Commerce.)
(5) The facilities of OCD Registers be more fully developed
by coordinated effort between OCD and ORE for purposes of
maintaining and supplying basic intelligence data. Also machine
method facilities of OCD be employed more fully for centralization
of basic statistical data.
(6) Action be taken to provide access to the files of NIS
contributors for ORE regional analysts.
(7) The facilities of the External Research Program be
more fully employed to provide basic intelligence data.
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4+. Requirements
a. Since the problems relating to this activity are inter- and
intra-agency in scope, the survey findings are contained in a
memorandum to Chief, COAPS, attached as Tab C. Management Staff
recommendations are contained in a "Proposed Plan for Realignment
of Certain Agency Functions", dated 3 July 1950, attached as Tab D.
b. The analysts generally indicated that the ORE Requirements
Staff emphasized its "control" function and appeared to be more of
an obstructing than a facilitating agent in servicing their informa-
tion needs. It is suggested that the Requirements Staff reach a
closer understanding with ORE regional analysts so that its assistance
will be recognized as such.
5. Collection
a. Findings
(1) Survey findings and recommendations relating to the
collection of information are contained in three memoranda
addressed to Chief, COAPS, to AD/00 and to AD/OSO and attached
as Tabs E, F, and G respectively. Also attached as Tab H is a
memorandum addressed to AD/OCD containing survey findings on
OCD service to ORE regional divisions.
(2) The adequacy of collector's fulfillment of ORE needs
was largely contingent on the informal coordination existing
between ORE desk analysts and the appropriate collector's area
specialists. All analysts heartily endorsed efforts made
within the past six months to establish coordination between
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(4+) The one collection service under the cognizance of
ORE, namely, presentation of U.S. returning officials, while
most fruitful in some instances, was,regarded to be of marginal
value in many cases. The analysts felt the greatest value
derived from such presentations is the opinions offered by
the official on critical situations. Such opinions are generally
offered only at small informal gatherings.
(5) The curtailment of foreign newspapers for budgetary
reasons was cited in some cases as seriously curtailing the
information available to the analysts. (Management will investigate.)
b. Recommendations It is recommended that:
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(1) ORE officials cooperate with officials of CORPS, 00,
OSO, and OCD in evaluating and implementing suggestions of
ORE analysts for improved collection support from other offices
and agencies.
(2) The efforts taken to strengthen relationships between
ORE desk analysts and area specialists of OSO-00 be continued.
(Note - Closer coordination between D/WE and OO/C was initiated
as a result of a survey suggestion.)
(3) Steps be taken to provide for
including one or more positions
economic coverage by
for the collection of scientific information;
arrangements for adequate economic coverage of
DPs and other refugees be made. (Effected 14+ July 1950.)
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(4+) The following suggestions for enhancing the presentation
activity be evaluated and implemented, if feasible.
(a) Provide more data on the speaker, such as his
specializations, and an evaluation of his effectiveness,
as indicated by reports he has submitted and the personal
knowledge of analysts.
(b) Arrange for a greater number of small specialized
gatherings and a fewer number of large general presentations.
(c) Provide transcripts of presentations to interested
analysts, when so requested.
(d) Make provision for debriefing ORE analysts who are
sent abroad on official business.
(5) Request adequate budgetary provision for purchase of
foreign newspapers and other materials when analysts express
real need and are capable of handling the language without
translator assistance.
(6) Provide a procedure whereby desk analysts will be
alerted to watch for new sources of information and whereby adequate
follow-up of such suggestions will be provided.
6. Information Control and Reference Activity
a. Findings
(1) The volume of information routed to desk analysts each
day is constantly increasing. Scanning, annotating and filing
these materials absorb a considerable portion of the analysts'
working day. The problem of handling these materials more
expeditiously will become more critical as more materials are
received with no further increase in staff.
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(2) Varying degrees of selectivity in determining value
of documents were encountered at the control or distribution
points prior to receipt of information materials by the desk
analyst.
(3) Channeling requests for inter-library loan through both
division and ORE information controls resulted in duplicate
workload and delay in receipt of requested materials by the
analysts. Also, channeling requirements through division informa-
tion control resulted in duplicate workload and in delays in
receipt of requested materials.
(4) Several of the Division Information Control Sections
maintained two document locator files arranged by control number
and by area. In most cases only one of the files was utilized
for reference purposes. Also like locator information is
maintained by OCD.
(5) The size of files maintained by analysts varied
considerably from division to division. ORE direction to keep
files to a minimum has to a large extent been well received by
the analysts and they are for, the most part, complying with
the directive. Large files were maintained by desk analysts
who:
(a) were comparatively new to the organization
(b) had recently initiated coverage of a new area
(c) had a situation report to complete.
(6) Instances of unnecessarily large files noted during
the survey were reported to Branch and Division Chiefs for
corrective action.
b. Recommendations It is recommended that:
(1) The plan for integrating ORE information control
activity with OCD dissemination and distribution activity
presented in memorandum to AD/ORE, dated 29 November 1949
be implemented.
(2) After implementation of plan described in (1), above,
arrangements be made with OCD to determine to what extent
OCD readers can be selective in screening out materials of
marginal or no intelligence interest to ORE desk analysts,
thereby reducing the volume of materials received by desk
analysts. (Note - During course of the survey an experiment
was initiated whereby OCD readers would select, in accordance
with specific requirements, materials to be forwarded to the
International Communism Section of D/EE. D/EE evaluation at
the end of the months' experiment should determine if OCD
selection would be of benefit to this D/EE activity and the
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Only one document locator file be maintained in
(3)
each Division Information Control Section.
(4) The limitation placed on analyst files being maintained
in ORE be continued and the desk analysts be encouraged to rely
more heavily on OCD reference facilities, and to provide OCD
with continuous advice on services and materials desired.
7. Administrative Considerations
a. Findings
(1) Pending action on an over-all ORE reorganization, recommended
in paragraph 2b(4), above, certain T/0 adjustments are required
within D/EE and D/NEA.
(2) The area analysts indicated that they felt their efforts
were not of interest to or appreciated by Agency top management.
(3) Likewise, they indicated that their opinions were not
solicited as to administrative policy and procedures within
ORE when such action concerned their working effort or welfare.
(4) The analysts expressed a need for Agency assistance
and facilities to promote their professional growth, maturity,
and competence.
(5) To assist them in their work, the analysts felt need
for greater freedom to consult with specialists within all parts
of the Federal Government, for greater knowledge of technical
skills existing within CIA, and for access to security-cleared
consultants outside the Federal Government.
(6) Provision of some office accessories, normally authorized
for Federal Government use, such as telephone books, and improve-
ment of office working facilities would be welcomed by many
of the analysts.
b. Recommendations It is recommended that:
(1) T/O adjustments in D/EE and D/NEA be worked out with
Management Staff.
(2) The AD/ORE take appropriate action to persuade the
Director of Central Intelligence, the Executive, members of
COAPS, and other policy-making officials of the Agency to
confer with the ORE regional division analysts periodically.
Also insure that appropriate comments of the Director and other
Agency policy-makers on particular ORE intelligence be communicated
to all interested analysts.
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(3) the Members of the Plans and Policy Staff be instructed
to solicit opinions, not only of Division Chiefs, but of the
interested area analysts, prior to development of ORE plans,
policies, and procedures.
(4) Steps be taken within ORE to request appropriate Agency
action to provide for ORE analysts:
(a) foreign language classes.
(b) foreign travel or foreign assignment by ORE-OSO
exchange
(c) trips to American industry
(d) indoctrination in organization and facilities of
the Agency.
(5) Procedures be established, through appropriate Agency
channels, to provide for ORE official:
(a) listings of technical skills of CIA personnel
(b) listings of technical specialists in other agencies
of the Federal Government who may be available for consultation.
(c) listings of security-cleared consultants from outside
the Federal Government.
(d) permission to consult with the specialists listed
in (a), (b), and (c), above.
(6) Arrangements be made:
(a) to provide CIA telephone directories to the analysts
who express need for them
(b) to provide wall clocks in the ORE working offices
(c) to consider, when the present space crisis is over,
the needs of certain analysts for greater privacy when conferring
or drafting. Possibly, the provision of two or three partitioned
cubby-holes, such as reading rooms provided graduate students
in university libraries, per division might be practical.
Also, explore the possibility of obtaining, through procurement
channels, glass enclosed office units, recently placed on
the market.
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Chief, COAPS
Budget Officer
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TAB A
July 114, 1950
MEMORANDUM FOR: Assistant Director for Reports and Estimates
FROM: Management Officer
SUBJECT: Factors to be reconciled between NIS program and basic 1
economic research activity of Eastern Europe Division, ORE
1. A complete and reliable body of knowledge of basic statistics
and data on Russian and Orbit economy presently is nonexistent. Policy
planning bodies such as Joint Chiefs have continuous need for such
information, broken down by industry and commodity.
2. The western nations generally publish this type of infor-
mation in public documents such as almanacs and yearbooks. The data
needed for United States foreign activities is compiled and maintained
in agencies having the primary interest such as Commerce, Agriculture,
Labor, and Interior. The primary use for these data is United States
foreign trade and finance. OIR of State Department has primary re-
sponsibility for maintaining the data required for intelligence opera-
tions.
3. The situation concerning Russia and Satellites is quite
different in all respects. The data is not publically issued which
requires employment of intelligence collection and production techniques
to arrive at complete and reliable answers. The primary needs for
these data on the Soviet are: (1) waging a cold war; (2) ascertaining
Soviet capabilities and intentions regarding a "shooting" war.
4+. 'While some information on basic Soviet economy is maintained
in Commerce, Agriculture, Labor, Defense, and particularly OIR of State
Department, the coverage is specialized, incomplete because of lack of
staff, and unreliable in these agencies denied access to classified
information. To remedy this situation within CIA, an Economic Branch
with approximately fifty positions was established in Eastern Europe
Division.
5. However, by NSCID 3,.CIA is also charged with the responsibility
for coordinating and reviewing National Intelligence Surveys being
produced outside of CIA, which would present basic intelligence on all
areas of the world. Thus, basic economic data on the Soviet is being
compiled and published by another ORE component.
6. To date, no effort has been made to join the two efforts.
It would appear that close coordination of these two activities would
be mutually beneficial and duplication of effort could be drastically
reduced. Examples of the cleavage between these activities are:
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a. The analysts of Eastern Europe Division have never
seen and have no knowledge of the NIS outline. There is
no assurance that the completed NIS will be of any use to
Economic Branch, Eastern Europe Division.
b. No attempt has been made to standardi2e economic
values used, such as bases, criteria, statistical formula.
Thus, we may have contradictory basic intelligence emanating
from CIA.
c. The analysts of Eastern Europe Division have not
been compulted as to priority of production assignment of
NIS sections.
d. The analysts of Eastern Europe Division have never
been informed as to what agencies of the government are
participating in the NIS program or their areas of responsi-
bility so they are not able to avail themselves of the effort
being expended in economic study of the Orbit.
e. NIS participants of other agencies have informally
approached Eastern Europe Division requesting assistance such
as:
(1) Access to FDD holdings.
(2) Access to EE files.
(3) EE opinion and advice on their projects.
f. Pre-publication drafts of NIS sections are not made
available to Eastern Europe Division analysts for reference.
A draft is forwarded to Eastern Europe Division for review
but must be returned to NIS Division within stated time
limitations.
g. No action has been taken to authorize Eastern Europe
Division utilization of data being compiled in other agencies
for purposes of keeping issued sections of the NIS current by
periodic revisions of such sections.
7. Consideration should be given to institution of procedures for
coordination of these two basic economic intelligence efforts. Such
action would eliminate costly duplication of effort within the Federal
Government and would enhance the quality of the intelligence product.
Feasible procedural changes are:
a. Review of NIS outline by Eastern Europe Division
economic specialists to ensure complete coverage and to
indicate priority of activity to be undertaken in other
agencies from standpoint of need within Eastern Europe
Division.
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b. Arrangements to permit continuous liaison with NIS
producers and Eastern Europe Division so that data may be
freely exchanged and work effort may be integrated.
c. Definition of channels and priorities for utilization
of CIA services of common interest to both groups. These
CIA services include FDD and OCD.
d. Assignment of production of basic economic intelli-
gence of Soviet to Eastern Europe Division.
8. Many of the above listed discrepancies are equally applicable
to other divisions of ORE but are not as serious since it does not
involve complete duplication of activity.
151
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TAB B
July 14, 1950
Assistant Director for Reports and Estimates
Management Officer
Discussion of D/NEA reaction to the NIS Studies Covering this
Regional Area
1. Many hours of production analysts' time have been allocated
to the correction of basic research materials submitted through NIS
channels by Chapter-contributors to D/NIS and referred by D/NIS to
ORE regional divisions for comment. These comments include correc-
tion of errors and detection of inaccuracies, omissions, and fallacious
statements contained in the basic drafts.
2. Despite the effort expended by the intelligence analysts
within the responsible.ORE area to correct contributors' drafts,
it appears that D/NIS has often disregarded the efforts of these
regional analysts. In these cases, D/NIS has two stories and needs
only one correct answer. The question arises as to who is correct,
the contributor or the ORE regional analyst? This seeming, disregard
of ORE regional comment may in large part be attributable to the fact
that once the basic research has been performed within the
Agency having responsibility for the contribution, D/NIS is unable
to gain acceptance of errors and inaccuracies pointed out by ORE
analysts.
3. Comments of ORE area specialists in D/NEA indicate that
materials used for basic research by Chapter contributors are limited
to those immediately at hand and little or no effort is expended
in exploiting source material available locally through other agencies
or available through field action.
4. It appeared to us that the D/NIS attitude is that errors
in these publications will reflect on the Chapter contributors and
not on CIA. This attitude is not shared by the Management Staff.
On the contrary, it is our experience that many responsible Agency
officials feel that this is a CIA publication. Credit or criticism
of the publication will fall on CIA and not on the Chapter contributors.
5. We have checked these complaints with the Chief and editors
in D/NIS. They indicated that they are aware of these difficulties
and are taking steps to rectify existing situations. It appears
that a further check should be made with D/NEA analysts six months
hence to determine if corrective action has been taken by D/NIS.
/s/
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Chief, COAPS
Management Officer
Information Requirements
TAB C
25 May 1950
1. On 12 April 1950, the Acting Executive requested that I
re-examine the requirements and collection directive situation in
coordination with your staff, submitting recommendations, fully
documented.
2. Pertinent facts relating to this problem obtained through
surveys of OCD, ORE and OSI are presented in the attached study
together with suggestions of analysts of ORE and OSI for improve-
ment of the present situation. To permit you to review the problem
objectively, recommendations of this office are not included.
3. It is suggested that, after you have reviewed the attached
study, we hold an informal conference at which the merits of the
suggestions of the ORE-OSI analysts can be discussed and at which
we can develop for the Acting Executive coordinated recommendations
relating to improvement of the present situation. At this time
Management could have AD/ORE and AD/OSI concur in the statements
made in this study if documentation is desired.
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1. Present Agency policy sets forth a formal procedure for the pro-
cessing of information requirements. The role of the principal participants
follows:
a. The production analyst - The need for the information is iden-
tified and formulated. The need usually arises either from the receipt
of an information report which suggests possible changes in the current
situation or from initiation of a production paper, the completion of
which is contingent on further information. The formulated need and
suggestions for source assignment are incorporated into a tentative
request for action by the ORE or OSI requirements staff. In ORE the
request is channeled through a division information control unit for
establishment of controls. In both offices, the requirement usually
has the official concurrence of the division chief.
b. The ORE/OSI Requirements Staff - The request is examined at
this point for determination as to coordination required within the
other divisions of both production offices and this coordination is
effected. Also the request is examined to determine:
(1) If documented information on hand may satisfy the request.
(2) If the request duplicates requirements outstanding.
(3) If time limitations are reasonable.
(4+) If the information requested is within the functional and
organizational sphere of the requestor.
(5) If the information requested is of such a kind that the
collector can be expected to respond., e.g., Only questions "of
fact" are accepted; questions "of mind" are excluded.
When the above determinations have been made, the requirement
is redrafted, a ditto master is prepared and the requirement is trans-
mitted to OCD.
c. Liaison Division, OCD - The activity of the Production Offices'
Requirement Staffs is duplicated here in relationship to other offices
of CIA and to the IAC agencies. The collection source is determined,
with consideration being given to suggestions of the production analyst
and the Production Office Requirements Staff. A collection directive
is prepared, attached to ditto copies of the requirement and dispatched
to the collection agency.
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d. Collection Agency - The collection agency carries on from here
determining methods and facilities to be employed. It should be noted
that the collection agency may refuse to accept the requirement and
may do so without justifying its action. In the case of State Depart-
ment, the requirement must first be reviewed and in some cases redrafted
by the OIR desk, prior to receipt by the policy desk for collection
action.
e. Authorized deviations from the formal procedure - l/
(1) The "P&P" procedure - 00/C's pressing need for requirements
two years ago resulted in installation of a procedure whereby OO/C
directly requests requirements from ORE-OSI when it has travellers
going to foreign points. The requirements resulting from the
request are transmitted directly back to OO/C with OCD receiving
an information copy for subsequent d s nination of reports result-
ing from the requirements. ORE analysts, ORE Requirements Staff,
and OO/Hdqrs. have all expressed the belief that this procedure
may not be necessary if liaison contact were established between
OO/C and ORE-OSI analysts. It would appear considerable savings
in processing time by all participants could be achieved if this
procedure were discontinued.
(2) Presentations - Information requirements formulated for
interrogation of US Government Officials returning to this country
are prepared by the production analysts of ORE and OSI and are
transmitted directly to the Presentation Branch of the Administra-
tive Staff, ORE, who arranges for the presentation.
(3) Scientific requirements - OCD has relinquished its assigned
function for final coordination of all scientific requirements to
OSI. Presently, the bulk of scientific requirements are generated
in the SIC and its sub-committees. In the case of a scientific
requirement originating outside the SIC, such as one from OPC or
OSO, OCD sends the requirement to OSI for final coordination.
f. Confusions existing in the present organization -
(1) Responsibility for initiation of requirements in the bio-
graphic, industrial and graphics fields have not been assigned and
neither OCD nor ORE is sure of its responsibility to initiate or
to coordinate these requirements.
(2) No policy has been established as to the need for or desir-
ability of ORE-OSI reviewing the requirements of non-production
offices of the Agency, i.e., 00, OSO, and OPC.
2. A discussion of Information Requirements requires clarification of
the term "information requirement". In its broadest sense an information
requirement could be any request for intelligence information, such as:
1 Unauthorized deviations are discussed in paragraph .
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a. Request for a book in the library
b. Request for field collection of information not previously
documented, or
c. Request for a research study by IAC or through external
research facilities.
Factors a and b above fell within the "requirements" concept
which prevailed within CIA until the reorganization of OCD in June of
1948. At that time, it was decided to exclude requests for documents from
the 'trequirements" process. The third factor listdd above has always been
handled as part of the "production" process.
At this point, general agreement prevails that the "requirements"
activity is concerned with direction of field collection. However, within
this definition, a wide difference of opinion is found as to "what" action
constitutes direction to collection facilities. For purposes of this
discussion, three types of directive action can be identified and discussed
separately:
(1) General reporting guides.
(2) Directives to the collecting facility for procuring and
reporting specific information within specific time limitations.
(3) Guidance to the field on the scope and method of reporting
desired for currently strategic situations.
3. General Reporting Guides - This type of requirement action is proc-
essed through the requirements organization outlined in the preceding para-
graph. This requirement is designed to guide the collector as to topics
of interest.
No Agency pattern has been established for the presentation or
initiation of this type of requirement. ORE has probably achieved the
greatest uniformity whereby comprehensive guides (up to 50 pages) have
been drawn up for each country. The content is in outline format with
categorical breakdowns. It may be compared to the "Essential Elements of
Information" issuance of the Department of the Army. Some divisions of
ORE have made the issuance more meaningful by indicating on the margin
opposite each entry a code for priority of need and another code indicating
quality of existing reporting on that topic. It should be noted that
because this issuance is a topical outline, no relationships between topics,
other than categorical arrangement can be shown.
OSI is far behind ORE in issuance of meaningful collection guides.
No attempt has been made to coordinate the ORE and OSI activity in this area.
No action has been taken by either ORE or OSI to coordinate these guides with
the IAC.
OCD has issued one such document on transportation requirements.
The propriety of OCD action re this requirement was questioned by the Manage-
ment Staff.
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4. Directives for Specific Information - This type of request is
considered to be the most important and the bulk of requirements processed
fall within this category. Like the reporting guides, these requirements
must be processed through the requirements organization outlined in paragraph
1 above.
Surveys of OSI and ORE reveal that the ORE and OSI analysts are
not initiating many of these requirements which are necessary to objective
intelligence estimating. For example:
I I Within the past six months, one require-
ment was initiated in uctooer,'one in November and a third in February.
Discussion with analysts concerned indicated considerable need for
further information.
b. Within calendar year 1949, OSI initiated only 34+ requirements
of this type, even though OSI recognizes that the need for scientific
information is critical.
Immediately, the question of why these requirements are not being
initiated arises. Several answers to this question were supplied:
a-. The processing machinery is too slow. When questions arise,
answers must be promptly obtained to be of value. An ORE study revealed
that in many cases sixty days elapsed from the initiation of the require-
ment until the request was dispatched to the field. It should be noted
that in addition to the sixty days mentioned above, an additional fif-
teen to thirty days must be added for collection and transmission of
the reply. (Of course, many collection actions under study require
months to complete.)
b. Controls and reviews inherent in the present processing mach-
inery are unduly time-consuming to the analyst - The analyst isgreatly
limited by strict interpretation of the criteria set forth in paragraph
lb above at all control points. He must be prepared to justify his
requirement in fullest detail showing that the request meets each
qualification. In practically each instance the request is rewritten
at one of the control points and the analyst must either compromise
on amount or kind of information requested or be prepared to spend
many hours explaining the intelligence situation which has prompted
the request. Examples of actions resulting from this strict control
follow:
(1) After three months of waiting, an analyst in ORE was
advised that the report which prompted his inquiry for further
information satisfied his requirement.
(2) A bibliography of reference materials compiled by the CIA
Library from Library of Congress catalogs was presented to an OSI
analyst as satifying his request for field collection.
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c. The communication necessary to developing mutual understanding
analyst and collector of analyst's need is denied by interjection
of control points. In many instances a rather full discussion of the
intelligence situation is required to place the questions at issue in
proper perspective. This is particularly true when an analyst wants
a newly-developing trend kept under close observation by the field
collectors. Such explanations are too lengthy for inclusion in require-
ments as presently constituted and are not considered to be sufficiently
definitive. Also, the analyst may be told that this situation is covaed
by outstanding reporting guides and will be reported spontaneously by
the field.
e. Faulty Direction of Collection Action - Collection action is
largely directed in accordance with sources suggested by the ORE/OSI
analyst. The only marked deviation is in the attempts made to utilize
OCD library and register facilities in lieu of field action. In those
instances the analyst may be given materials he already has rather
than the additional information he desires. Those responsible for
assigning; collection action do not have adequate knowledge of collection
capabilities of the suppliers. For example:
(1) Certain directories requested by OSI were directed to
State for Embassy action. Six months time elapsed in satisfaction
of the requirement. In the meantime, OSI informally located and
borrowed the desired volumes in the Department of the Army.
(2) ORE requested the reaction of industry in a European nation
toward legislation changing labor practices. ORE indicated State
to be used as the source. Subsequently collection action was assigned
to State with no consideration being given to utilization of OO/C
facilities.
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The situations described above have prompted considerable informal
collection action within ORE and OSI, which action has not been handled
through the established requirements process. These informal collection
actions include:
a. Initiation of action through IAC or SO counterpart.
b. Utilization of personal relationships to obtain answers through
non-established collection sources.
c. Inclusion of requirements in evaluations and in production
papers. (This action will be more fully discussed in the succeeding
paragraph.)
5. Continuing collection guidance - This type of collection direction
has taken place apart from the requirements process and in some instances
is not recognized as collection guidance. It has developed from recognition
of an existing need for communicating with the collector about developing
situations. In this type of action, the production analyst discusses
current situations with the collector and indicates trends which appear to
be developing and why he thinks such is the case. In return, he hopes that
the collector will watch the situation and send him information which will
confirm or deny his hypothesis. This type of guidance has been incorporated
into two kinds of papers:
a. Evafations - Here the analyst discusses the contents of a
report, tells the collector if the information is useful and what further
information he would like on the subject in question. This vehicle is
used principally in communication with OSO and OO/C, since each of their
reports are evaluated. The information resulting from this type of
communication with the collector has been of great value to the ORE
analysts. However, one ORE division has recently been enjoined from
including requirements in evaluations. Unless this procedure is
recognized and legalized for its requirements aspects, this requirements
channel may be cut off completely to the possible detriment of both
the production analyst and the collector.
b. Production papers - This vehicle was particularly used by OSI.
However, some ORE division working papers do set forth both trends that
need watching and information gaps. Since requirements become most
apparent at time of production, it is very easy for the analyst to
include them at time of production. While there is no assurance that
collection action will result, there is always the chance that the
collecting agencies will be influenced to the extent that they will
initiate collection action to cover these information gaps.
ligpa y a% apfei2i for the
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a. Determination of what type of collection guidance should be
handled within a requirements organization and clarification of respon-
sibilities for requirement action.
b. Development of a requirements organization and procedures which
will permit:
(1) Easy initiation of requirements.
(2) Speedy action on dispatch of requests to the field.
(3) Adequate guidance from producers of national intelligence
to field activities.
(4) Effective coordination of requirements from both collection
and production viewpoints, both within CIA and possibly by joint CIA-
IAC type action. (such as joint committees.)
c. Improvement of service to CIA from collection facilities.
7. The following suggestions have been made by ORE-OSI analysts for
improvement of both requirement and collection activities:
a. Coordination of all requirements and assignment of collection
action by originating production division.
b. Assignment of requirement activity to a member of the production
division who will be empowered to deal directly with all collectors'
agents.
c. Establishment of operational liaison between regional desks of
ORE-OSI and OO/C and OSO whereby requirement action will be handled
directly between CIA producers and collectors. (In process of implementa-
tion.)
25X1 C4A
f. Expansion of ORE-OSI requirements staffs to permit assignment
of a staff member to each ORE regional division and OSI functional
division for complete handling of requirement from time of its inception
to action by collector, thereby eliminating OCD from the requirement process.
g. Participation by ORE and OSI in the operational planning of all
collection facilities, but in particular of those in CIA.
h. NSC direction to IAC collectors to give priority to all CIA
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j. Recognition of the "evaluation" as a requirement vehicle, with-
out subjecting it to requirement controls.
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c0P~I
3 July, 1950
Acting Executive
Management Officer
Proposed Plan for Realignment of Certain Agency Functions
1. There is attached hereto a draft of a proposed plan for the
realignment of certain Agency functions based on studies made by this
office and comments received from various operating officials. Briefly
the plan proposes the following changes:
a. Redesignate Office of Collection and Dissemination as Office
of Reference and Dissemination.
b. Transfer function of coordination of requirements and assign-
ment of collection action from OCD to joint control of ORE and OSI.
c. Transfer function of collection of material from other
government agencies from OCD to 00.
d. Transfer ORE presentation function to 00.
e. Transfer function of governmental liaison control and records
from OCD to I&SS.
f. Redesignate Office of Operations as Office of Overt
Collection.
g. Transfer function of administrative machine records
support from OCD to SSS.
2. It is our belief that the proposal submitted has been soundly
conceived and that if adopted will result in more efficient and effective
Agency operations.
3. Request authority to coordinate the proposed plan with all
interested components of the Agency. 1
5/
1
Encl: Proposed Plan
25X1A9A
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10 July 1950
MEMORANDUM FOR: Assistant Director for Collection and Dissemination
Assistant Director for Reports and Estimates
Assistant Director for Scientific Intelligence
Assistant Director for Operations
Assistant Director for Special Operations
Assistant Director for Policy Coordination
Chief, Inspection and Security Staff
Chief, Special Support Staff
Chief, Coordination, Operations and Policy Staff
SUBJECT: Realignment of Certain Agency Functions.
1. There is attached hereto a copy of a proposed plan recently
submitted to the Acting Executive concerning realignment of certain
Agency functions. The Acting Executive has approved our request for
coordination of the plan.
2. It is requested that you review the plan and submit your
comments or concurrence to this office by 28 July 1950.
25X1A9A
Management Officer
Attachment: Plan re Realignment of Certain Agency Functions.
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TAB D
DRAFT 3 July 1950
PROPOSED PLAN FOR REALIGNMENT OF CERTAIN AGENCY FUNCTIONS
COPY
1. A series of Management Staff studies of CIA operations under-
taken within the past year disclose that serious deterrents to operating
efficiency could be removed by realignment of Agency functions. There-
fore, it is recommended that the Office of Collection and Dissemination
be redesignated the Office of Reference and Dissemination and that the
major functions listed below be transferred as indicated.
2. Coordination of information requirements and assignment of
collection action from OCD, Liaison Division, to joint control of the
requirements Staffs of the Assistant Directors of ORE and 051.
Discussion: The functions of coordinating requirements and
assigning collection action are so closely integrated that they
can properly be considered as a single function. Experience has
shown that requirements have been most easily satisfied when informal
liaison with the collecting agency is possible in the initial stages
of requirements formulation. The timing of requirements, as well
as the information to be collected, must be evaluated for collect-
ability by the collector. In many cases, the collector is the dominating
factor as to whether certain information can be obtained and should
be formalized as a requirement. Pull coordination of requirements
in the production offices will, as a matter of course, provide for
the participation of 00 and SO in the requirements activity. Also,
it is anticipated that the requirements coordination activity will
encompass, in varying degrees, participation of both intelligence
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ment basis as well as on an assignment basis. As a joint responsi-
bility of ORE and OSI, each requirement will be processed by the
Agency component who is most interested in obtaining the necessary
information for the proper evaluation of intelligence, with such
requesting component being onpowered to negotiate directly with
the collecting facilities at an early stage of requirement formulation.
Further, there will be one less echelon in the requirements
process. Experience has indicated that for every additional echelon
between the formulation of a request and the completion of the action,
the basic information desired is adulterated and possibly weakened.
Also, the time taken to effect completed action on a requirement is
lengthened by the additional processing required.
Under normal circumstances, the Management Staff would rarely
recommend that a major function be placed under joint control of
two Assistant Directors. In this Case, however, it appears workable
because scientific requirements are primarily generated in the
scientific Intelligence Committee. Thus, except in isolated instance,
all requirements of OSO, OPC, 00, and other intelligence Agencies
referred for coordination will fall within the jurisdiction of ORE
and can be directly routed to this Office for action. Coordination
of ORE and OSI requirement activity can be enhanced by installation
of uniform procedures and by physically locating these two Staffs
in adjoining space.
3. Collection of intelligence materials available in operating
units of other government agencies from BCD, Liaison Division, and from
ORE, Presentatiua Division, to Office of Operations.
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Discussion: The overt collection function of this Agency has
been divided between several collection activities located in different
Offices. It is envisaged that ultimately all overt collection will
be located in one Office. The transfers proposed in this paragraph
for immediate action would bring together all overt collection
25X1 X4 activity
possible that this OSI activity could also be transferred to 00
in the near future. Then, the Office of Operations could be
renamed the Office of Overt Collection.
There is a very important further point to be considered in
conjunction with assignment of the overt collection function. It
is one thing to collect material, record it, index it, and place
it on shelves for future reference. It is a quite different
proposition to collect intelligence materials analyze, select, and
edit the information and prepare information reports from these
materials in satisfaction of information requirements of the
production analysts. Also, 00, who is now CIA's primary overt
collection facility, has the experience, resources, and capabilities
to effect a better collection action than OCD, ORE, or OSI for whom
overt collection is a secondary responsibility.
4+. Governmental Liaison controls and records from the Liaison Division,
OCD, to Inspection and Security Staff.
Discussion: Primary Agency control of official liaison of CIA
employees with employees of other government agencies is vested in
I&SS, who in the final instance determines from a security standpoint
whether liaison contact may be established and continued. Therefore,
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it would appear logical that I&SS should approve or disapprove
original contacts, should supervise liaison establis~f/b-n a continuing
basis, and should maintain the control registers. Through functional
realignments suggested above, which group like functions under one
office, the instance of duplication of contacts between Offices
would be negligible. The Assistant Directors, as part of their
administrative duties, are presently controlling duplication of
contacts between divisions of their Offices and other agencies of
the Government.
5. Machine records support for administrative operations from
Machine Methods Division, OCD, to the Special Su port Staff.
Discussion: It is a known fact that economy and efficiency
can be obtained from centralization of like machine records activities.
It is wholly reasonable that the Offices in L and K Buildings do
not wish another office to handle their very sensitive T/Os, rosters,
etc. Conversely, the other parts of the Agency could have no
objection to having their administrative activities handled by a
more sensitive operation in CIA. Thus, it is proposed that all
the machine records support relating to administrative matters be
located in L Building and handled by employees whose security
clearance are acceptable to OPC, OSO and the Advisory Council.
All substantive support will be retained by OCD.
6. The mission of the Office of Reference and Dissemination would
enforce the two functions implied in the new name. Ii would be wholly
responsible for the maintenance of library and reference materials such
as those now held in the library, the Biographic Division, the Industrial
Division, and the Graphics Division. As part of this reference function
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it would perform certain collection activities. However, it would be
a clear-out document type collection activity based on the fact that
the materials being collected are reference materials and not a directed
collection activity in the sense that 00 and OSO conduct collection.
Also, it would maintain the Agency archives, the records management
program, courier and messenger service, the clipping service and all
such common-type services as it it now rendering. Likewise, centralized
machine records support to the substantive intelligence operations of
the Agency would remain the responsibility of ORD. Exclusive responsi-
bility for the dissemination function in the Agency would constitute
the second major phase of the ORD mission. It is anticipated that this
function can-be further centralized and become of greater service to
the Agency by elimination of duplicate dissemination activities in other
CIA Offices and by placing greater responsibility with disseminators
for the selection of intelligence materials to be routed to CIA components.
(Now in process)
7. It is felt that while some of these activities are affected by
the pending decision on NSC 50, most of these suggested changes can be
effected without reference to NSC 50. However, I should like to make
it a matter of record at this time that should this proposal be implemented
and subsequently NSC 50 should be returned to CIA directing consolidation
of SO, OPC, and OO/C this Office would urge that OO/C not be incorporated
into the L Building consolidation. An Office of Overt Collection, as
described in this proposal, would be quite different from the activities
of an Office of Covert Collection and Special Operations. It is believed
that CIA could operate more effectively by maintaining an Office of Overt
Collection.
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COPY
14+ July 1950
MEMORANDUM FOR: Chief, Coordination, Operations and Policy Staff
Assistant Director for Collection and Dissemination
.Assistant Director for Operations
Assistant Director for Special Operations
SUBJECT: Suggestions for Improvement of Collection Facilities
Resulting from Management Staff Studies of ORE and OSI.
1. Below are summarized the suggestions presented to Management Staff
Survey Teams by ORE and OSI analysts for general improvement of collection
coverage and service on requests of the production analysts for collection
of information. Those suggestions, which relate specifically to one of the
collection or reference facilities within CIA, are presented separately in
memoranda to appropriate Assistant Directors.
2. Sources Requiring More Intensive Exploitation
a. Overt facilities for obtaining published materials about
the Soviet and the Satellites, which may be available on Western
Europe newstands.
b. Friendly foreign governments for information on the Soviet.
25X1 BOA
c. Foreign offices of friendly nations in areas where U.S.
has.-no representation.
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3. Subjects Requiring Fuller Coverage
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4.. Presentation and Transmission of Information
a. Include more comment and interpretation of the collector in
information reports. Fuller information about enclosures, such as
authorship, circulation, reaction of recipients to the document,
would be helpful. Also, it was suggestdd that at least the table
of contents of foreign-language enclosures be translated, and, if
possible, an English-language resume of the foreign-language en-
closure be included.
b. Include more opinion of the sub-source on the significance
of the information he is reporting.
c. Follow-through to conclusion in subsequent reports,
situations reported as impending developments.
d. Mark open-literature enclosures, submitted with classified
reports, "unclassified" to permit easier handling.
e. Develop and employ a standard reporting format to be used
by all collectors of intelligence data.
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f. Provide more rapid service on
g. Report back to the requester on the status of a require-
ment when delays are experienced in the collection of the desired
information.
5. Coordination and Administration of the Collection Effort
a. Provide some type of "watch" or "control" procedure to
insure that all new categories of information reports are brought
into CIA and are appropriately disseminated within CIA, so that
all interested analysts are included in the dissemination, e.g.,
survey action disclosed that OSI team reports were not being
disseminated to ORE analysts or to other interested intelligence
agencies.
b. Provide for the referral, to selected regional officials,
of U. S. policy papers, memoranda of conversation, and other
informal memoranda from the field, such as memoranda of MAP
officials to the home office.
d. Provide for the full exploitation of II documents 2 5X6 D
on the Soviet and Satellites, now held in U. S. government
agencies.
e. Suggest that State Department stagger changes of personnel
in its foreign offices to provide for continuity of reporting.
/V
25X1A9A
anagemen cer
cc: Acting Executive
AD/ORE Concurred in by
AD/OSI AD/ORE 26 July 1950.
Budget Officer
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Assistant Director for Operations J U1 14 1950
Management Officer
Suggestions for Improvement of 00 Service Resulting from Management
Staff Studies of ORE and OSI.
1. Discussions with production analysts of ORE and OSI during Management
Staff studies resulted in comments and suggestions on collection and other
support rendered by other intelligence components to the production analysts.
The suggestions for improvement of general collection coverage and service are
contained in a memorandum to COAPS, et. al., dated 14+ July 1950. Comments
directed specifically toward the 00 services are set forth below.
2. Satisfaction with 00 service to the production analysts closely
paralleled the degree to which communication had been established between
working-levels of 00 divisions and the production offices. The best illus-
tration offered was that of ORE's Latin America Division. The analysts of
this Division emphatically stated that 00/c rendered by far the best services
of all collection facilities. The detail of a field collection specialist to
D/LA proved of unquestionable value to both D/LA and to OO/C.
3. Contact Division - Specific suggestions for the improvement of the
OO/C service to ORE and to OSI follow:
a. Suggestions relating to content and coverage include:
25X1X2
(2) With establishment of working-level liaison between
ORE-OSI analysts and OO/C area specialists, discontinue the
"P and P" procedure for obtaining requirements for travellers.
Instead, obtain requirements through informal working-level
liaison.
25X1X2
(1) Emphasize the collection of current information with
decreased effort on collection of familiar and historical data.
25X1X2
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(4) Analysts in D/EE expressed a need for a bibliography, con-
taining, if possible, a short resume of contents, of articles appear-
ing in periodicals published outside the "Iron Curtain" countries,
e.g., France, Italy, Scandinavia, which provide information on the
Soviet and Satellite nations.
25X1A9A
cc: Acting Executive
Chief, COAPS
AD/ORE
AD/OSI Concurred in by
Budget Officer AD/ORE - 26 July 1950.
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Assistant Director for Special Operations 11+ July 1950
Management Officer
Suggestions for Improvement of OSO Collection Service Resulting
from Management Staff Studies of-ORE and OSI
1. Discussions with production analysts of ORE and OSI during
Management Staff studies resulted in comments and suggestions on
collection support rendered byother intelligence components
the general
production analysts. The suggestions for improvement
collection coverage and service are contained in memorandum to CORPS,
et. al., dated 14 July 1950. Comments directed specifically toward the
OSO service are set forth below.
2. Satisfaction with OSO service to the production analysts
closely paralleled the degree to which communication had been estab-
lished between working levels of OSO and the production office. Where
such communication had been established, more requirements for informa-
tion were formulated and satisfied. Conversely, where such communica-
tion was absent, production analysts withheld formulation of requirements
because of their reluctance to assign to OSO perilous tasks and because
the validity of requirements previously submitted for OSO action were
challenged by OSO. Benefits accruing to OSO from working-level liaison
with the production offices are formulation of more realistic require-
ments for OSO collection action and the availability of ORE expert
assistance in evaluating the intelligence worth of and desirability
of disseminating questionable information received from the field.
Thus, it appears that both the ORE-OSI production and the OSO collec-
tion operations would be enhanced by extension of informal desk-to-
desk liaison between these offices to all regional and functional areas
covered by ORE and OSI.
3. Specific suggestions of ORE-OSI analysts relating to the content
and coverage of OSO reporting follow:
a. Expand coverage of information about the Satellite coun-
tries and China.
25X1 C4A
25X1X2
d. Supplement reports with observations on standards of living
and the situation in general for critical areas behind the "Iron
Curtain".
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e. Provide covert collection for overt information, not
otherwise obtainable from the "Iron Curtain" countries.
f. Provide fuller reporting on situations and trends. The
general comment was that OSO reporting on individuals was excellent,
but that the preoccupation with the individual often detracted from
the reporting desired on situations, movements, etc.
25X1X2
4. Specific suggestions of ORE-OSI analysts relating to presenta-
tion and transmission of OSO information follow:
a. By code or some similar device, indicate those reports
which emanate from the same source.
b. Lessen the time lag between collection of the information
and its receipt by interested analysts.
c. Refer all enclosures received to the interested CIA analysts
prior to referral to analysts of other intelligence agencies.
d. Refer all intelligence data collected to the appropriate
ORE or OSI analyst, utilizing the knowledge of the production
analyst to determine if the information is of sufficient interest
to warrant broader dissemination.
5. The possibility of coordinating the OSO training program with
basic research requirements of ORE was suggested during the survey.
It would appear that this suggestion should be explored for advantages
which might accrue to both ORE and to OSO.
I S l
25X1A9A
cc: Acting Executive
Chief, COAPS
AD/ORE
AD/OSI
Budget Officer
Concurred in by
AD/ORE - 26 July 1950.
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Assistant Director for Collection and
Dissemination
Management Officer
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JUL 14 !95C
Suggestions for Improvement of OCD Service Resulting from Management
Staff Studies of ORE and OSI.
1. Discussions with production analysts of ORE and OSI during Manage-
ment Staff studies resulted in comments and suggestions for improvement of
the support activities of the Agency and of other intelligence agencies.
Suggestions for improvement of the general collection coverage and service
are contained in a memorandum to Chief, COAPS, et. al., dated 14 July 1950.
Survey findings relating to requirements are set forth in a memorandum to
COAPS dated 25 May 1950. Management Staff recommendations are presented
in a memorandum to the Executive, dated 2 July 1950, titled, "Realignment
of Certain Agency Functions". Comments directed specifically toward the
OCD service are set forth below.
2. The majority of analysts expressed growing confidence in the ability
of OCD reference facilities to serve them satisfactorily. They specifically
indicated that OCD service had improved immeasurably within the last year.
However, they still expressed a reluctance to depend exclusively on OCD for
service on materials held by OCD for reference purposes. Instead, practically
all continued to maintain files of reference material known to be available in
OCD. However, a trend toward discontinuance of individual holdings as confi-
dence in OCD increased was discerned. Throughout the survey, Management Staff
members encouraged the production analysts to utilize and to rely on OCD
service to the utmost. Three criticisms levelled at all of the OCD Divisions
were:
a. Failure to advise requester on status of his request when
immediate satisfaction was not possible.
b. Tendency to supply considerable data which was not pertinent
to the request.
c. Absence of a central request-receiving point for obtaining
information from one or more OCD Divisions.
3. Suggestions of ORE-OSI analysts relating to the Liaison Division
follow:
a. Provide more intensive exploitation of the holdings of
materials of intelligence interest in the Federal Government,
particularly the agencies not represented on the IAC.
b. Administer operational liaison controls in such a
manner as to permit continuing operational liaison between
ORE-OSI analysts and counterparts in other agencies, without
referral to Liaison Division prior to each visit. Agency
policy set forth in Administrative Instruction No. ~on-
dones this type of control.
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c. Identify, arrange for security clearance, and establish
contacts for ORE and OSI analysts with technicians in non-IAC
agencies, such as the Federal Power Commission, to permit
utilization of such technicians for consulting purposes.
d. Procure reference data on the organization, functions,
and staffing of other intelligence agencies.
e. Arrange for the reproduction of meaningful single-copy
enclosures whenever dissemination indicates referral to several
recipients.
4. Suggestions of ORE-OSI analysts relating to the services of the
Registers follow:
a. Cross-reference the holdings of Graphics Register,
Industrial Register, and Biographic Register so that a request
to one of these Registers will indicate the existence of further
information in another Register.
b. As requested, route new acquisitions of the Graphics
Register to regional divisions of ORE for the information of
interested analysts and to stimulate ORE interest in the
services offered by the Graphics Register.
c. Explore the possibility of D/EE, Economic Branch,
indicating materials to be maintained in the Industrial
Register. Need exists for developing some means for reorganizing
the Industrial Register holdings and keeping such holdings current
so they can be used by D/EE, Economic Branch, thus eliminating
duplication of plant files in D/EE.
d. Discontinue preparation and issuance of Industrial Infor-
mation Reports now being prepared in the Industrial Register.
Instead, devote working facilities of the Division to bringing
files up-to-date.
e. Supply ORE analysts with dossiers, when such are avail-
able in Biographic Register, rather than preparing biographic
reports.
5?
Suggestions of ORE-OSI analysts relating to the Library follow:
a. Acquire and maintain in the Library for reference use:
(1) Current organization, staffing, and functions
charts of the agencies represented on the IAC.
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(2) Yearbooks, almanacs, etc., of the Satellite countries.
(3) The United States Treaty Series.
(4) The United States Trade Agreements.
(5) Information about and organization charts of the
International Organizations.
b. Provide better and faster service on inter-Library loan.
c. Forward meaningful single-copy enclosures to interested ORE-OSI
Divisions upon receipt, rather than waiting for the division to request
such enclosures.
d. List privately-owned reference books brought into the Agency by
CIA and make such listing available to interested analysts.
e. Provide a bibliography containing, if possible, a short resume
of contents, of articles appearing in English-language periodicals,
which provide information on the Soviet and Satellites.
f. Continue present efforts to fit the Agency classification
system to analyst needs.
g. Emphasize "service" attitude for all employees. Instances of
reluctance of Library employees to serve were reported by various
production analysts.
h. Increase efforts to orient all employees fully in Library
holdings and procedures. Many instances of failure to give service
were attributed to unfamiliarity of Library personnel with content
and location of Library holdings.
25X1A9A
cc: Acting Executive
Chief, COAPS
AD/ORE
AD/osI
Budget Officer
Concurred in by
AD/oRE - 26 July 1950.
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 STANDARD FORM NO. 64
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ce emoran um ? UNITE
D STATES GOVERNMENT
TO , Management Officer DATE:
FROM Assistant Director for Reports and Estimates
SUBJECT: Comments on Management Staff Study of Regional Divisions of the
Office of Reports and Estimates
1. The Management Staff Study containing the findings of a survey
of the ORE regional divisions, is an extremely useful document, identifying
major problems and presenting an excellent summary of problems that require
a coordinates effort by all components of CIA to resolve them. The Manage-
ment Staff has done an outstanding job in its survey, particularly in view
of the size and complexity of the problems involved. ORE views concerning
the reasons for some of the more important problems and steps that have
been taken to resolve some of them are set forth below.
2. ORE comments on the individual headings of the Staff Study follow:
a. Production
ORE believes that the various problems connected with the
production of intelligence stem from the following factors:
(1) Inadequacies in the basic directives, particularly
the NSCID's and the approved Statements of Functions of the
various CIA components.
(2) Lack of cooperation on the part of the IAC agencies.
(3) Non-oxistence of a generally accepted body of doctrine
covering:
(a) The role of intelligence in the formulation of
Foreign Policy.
The logical role
organization.
(4) Past failure of responsible echelons in CIA to acquaint
themselves with production problems and take aggressive action
to resolve them.
(5) Inadequate liaison with key policy-making and intelligence
officials.
With regard to the basic directive, it is believed that the
recently approved Statement of Functions for ORE will be of material
assistance in directing the production effort. In December 1949, ORE
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collaborated with the Legal Staff which submitted to CORPS a draft
NSCID designed to remedy other deficiencies in the basic directives.
This directive, in amended form, was approved by the DCI on 25 July
1950 and has yet to be submitted through channels for approval by
the National Security Council.
Lack of IAC cooperation was reported to the DCI on 30 September
1919 with supporting examples.
The ORE Plans and Policy Staff and various ad hoc committees
have addressed themselves to the problem of develop ng an adequate
intelligence doctrine. It is believed that ORE thought on this subject
is relatively mature and ORE action and recommendations are based
wherever possible on conclusions derived from this study. The problem
of disseminating this doctrine within ORE, however, has not yet been
resolved.
A program for the training and orientation of ORE analysts
has been under study for some time. Such a program would be of material
benefit in communicating developed doctrine to the analysts but the
staffing of such a training program and the inroads that the program
would make into the current production effort are difficulties that
must be overcome.
Mile ORE is able to identify the key policy making and
intelligence officials with whom it should be in constant contact,
it has been unable to establish such contacts because of an inadequate
staff and the fact that agency contact with many of these officials is
reserved to non-substantive components of the agency. ORE is particw-
larly desirous of establishing close liaison with the Executive Office
of the President, the National Security Council, the Policy Planning
Staff of the Department of State, the Joint Chiefs of Staff, and the
National Security Resources Board. Mile there is some contact with
the National Security Council staff, other contacts are in practice
non-existent. ORE's production planning activities have been drastically
impaired by this situation.
The complexity of the world situation requires considerable
intra-ORN, coordination of papers. The newly organized Special Staff,
however, is proving to be a valuable device for achieving this coordina-
tion informally and rapidly. The main asset of such a staff, however,
is its ability to produce high quality estimates in greater volume than
was previously possible on a decentralized basis and with a more
coordinated coverage of the total world situation.
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b. Basic Research
Basic research in the intelligence community is requiredd, to
serve four general intelligence needs:
(1) To support the production of National Intelligence.
(2) To support strategic and tactical plans and operations.
(3) To provide information for specialized operations (e.g.,
psychological warfare, covert operations, etc.)
(4) To permit effective implementation of operational programs
(e.g., export control, stockpiling of strategic materials, etc.)
The NIS program is devoted almost entirely to the basic research
needed in (2) above. Aside from the study of basic economic intelligence
on the Soviet orbit and map and geographic intelligence, there has been
no adequate, clear-cut provision for the production of basic intelligence
in fulfillment of the needs stated in (1), (3), and (Ii). ORE has had
to engage in some basic research on an ad hoc basis in order to meet
its own needs in these categories. In some cases it has had assistance
from the IAC agencies and from external sources. None of the sources
have proved adequate, however, and a grave problem remains, which
requires a fundamental solution including a re-examination of the NIS
program and its relative priority as compared with the other categories
of basic intelligence.
c. Requirements
ORE has always emphasized that the role of its Requirements
Staff,should be that of expediter and trouble-shooter, not a restrictive
channel. The Staff is required, however, to see that ORE requirements
are in collectible form. The AD/ORE receives a monthly report from
all ORE components on the user l.ness of the Requirements Staff and
few complaints, such as indicated in the survey, have been received.
It is believed that such complaints probably stem from personalities
or analyst reaction to a situation concerning which they were not fully
informed. The "Proposed Plan for Realignment of Certain Agency Functionstt,
if implemented, should permit a more effective development of the require-
ments function.
d. Collection
ORE has always taken the position that collection should be
directly responsive to the needs of the production components. Direct
contact between analysts and collectors is highly desirable, but the
complexity of the collection apparatus and the lack of clearly established
responsibilities vis-a-vis ORE on the part of the various collectors
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creates the need for some sort of central coordinating group such
as the ORE Requirements Staff. Inadequacies in the collection apparatus
have also created a back-log of frustration in the individual analyst
that makes him reluctant to devote what has seemed unproductive effort
to the formulation of requirements. The Requirements Staff has also,
therefore, had to encourage and stimulate the formulation of requirements*
e. Information Control
Some time ago ORE agreed to a 90-day trial of centralized
routing of incoming documents. This trial was delayed when OSI
questioned the efficiency of such a system which they were currently
using. It is suggested that if the OSI objections have now been
satisfactorily answered, the ORE trial period originally contemplated
should be undertaken.
f. Administrative considerations
ORE consistently attempts to take action in the light of
an intimate knowledge of the problems involved in the production of
intelligence. ORE shares the analysts, views that these problems
are not adequately recognized in some parts of the agency. Obviously
it is impossible to consult all interested analysts when administrative
matters affecting them are under consideration, but this problem is
overcome in part by the selection of key officials 'with, adequate
substantive competence and experience in intelligence production and
by frequent consultation with representative analysts in various
components of the Office.
3. In order to take effective action to resolve the problems cited
in the Management Staff Survey, it is important that the action be carefully
considered in the light of over-all agency problems. It is therefore rec-
commended that the Management Staff detail an analyst to ORE for a period of
ninety days to assist in a task force devoted specifically to the cited ORE
problems. Many of the problems will require long-range effort to resolve
and others will require action in other parts of CIA.
F FOIAB3B
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13 September 1950
MEMORANDUM FOR: Acting Executive
SUBJECT: Management Study of Regional Divisions of ORE -
Comment on
REFERENCE: (a) Management Memorandum to AD/ORE, dated
14 July 1950
(b) CORPS Memorandum to Management, dated
7 July 1950
(c) COAPS Memorandum to Management, dated
19 July 1950
(d) Management Memorandum to COAPS, dated
28 August 1950
1. In the submission of this comment upon Management's report
of a Survey of ORE regional divisions, the outline defined by the
major paragraph headings of reference (a),e has been followed. In
instances where COAPS has already formally commented upon certain
sections of the combined report, which were promulgated by Management
individually in advance of completion of the Survey as a whole, such
replies have been incorporated herein, by reference only.
2. Production
(a) In general, CORPS concurs in Management's recommendations
on Production. The opinions, queries and contentions of ORE person-
nel who were interviewed in connection with this Survey, relate
almost exclusively to ORE internal administration, and accordingly
were referred to the AD/O3E for his consideration, and for such
action as he might deem appropriate.
This report should be of considerable value to the AD/ORE
as a basis for ascertaining the desirability of adjustment of
organization and procedures, in the interest of improvement of
internal working relationships.
It is believed that many of the uncertainties, under which
interviewed personnel were laboring, might have been relieved, had
they been referred upward to the appropriate level in ORE. This
belief, therefore, suggests the desirability of close-coupling, by
firm supervisory relationships, a large organization such as ORE,
which may be inclined to sprawl and to become compartmentalized.
In amelioration of this tendency, it is suggested that, in general,
all effort expended should be responsive to directives generated
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in the office of the AD/ORE. The impression given, correct or
incorrect, is to the effect that each Division is largely "on
its own," and consequently each must determine independently,
in what manner its time and efforts shall be spent. Also,
effective as a unifying medium, is the establishment of a body
of ORE doctrine - (what to do; when to do it; and how to do it as
the AD/ORE wants it)-in order that an 'output' which has been
subjected to uniform manner of treatment, evolves from each of
the several offices of original effort and thereupon undergoes
uniform processing. And lastly, a program of training should be
instituted in order that there may be a common understanding of
instructions and doctrine enunciated by the ADOBE, and also to
bridge the several independent Divisions and to bridge the echelons
of review and correlation, in order to effect the best possible co-
operative effort. This training program should provide for personal
contact among members of the normal administrative organization, and
should not involve the introduction of full-time employees as
"instructors."
(b) The establishment and maintenance of good inter-office
relations at the working level is encouraged in the interest of
an 'over-all' saving in time, and also an individual saving in
time of intermediaries not essential to the transaction. Such
a relationship must necessarily be controlled, however, in order
to provide for proper record-keeping and to ensure that responsible
officials are not by-passed in matters concerning which they have ar"a 414-
enunciated no controlling policy. In the case of inter-office dis-
agreements, the Agency Organization adequately provides for arbi-
tration at the AD level. If unsuccessful, the subject matter of
the disagreement should be reduced to writing by each proponent,
and forwarded to the Executive via CORPS.
(c) The establishment and maintenance of informal inter-agency
liaison on a Desk-to-Desk - (Division Chief level) - basis is
approved, provided that such liaison arrangements are established
by or with the approval of the AD/OCD. Official inter-agency
relations, however, are governed by inter-agency agreements. In
the absence of a governing agreement, satisfaction of CIA requests,
if realized, procedes from a willing and cooperative spirit, only.
The failure of an outside agency to perform under an existing
agreement, however, should be reduced to writing and forwarded
to the Director via COAPS.
(d) The decision as to whether ORE Divisions do or do not
produce "Working Papers" should be left to the AD/ORE. However,
this determination should be based exclusively upon the ORE need
for this type of publication, and in no case should distribution
outside of CIA be made.
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3. Basic Research
So long as CIA labors under NSCIDs which vest no power to
direct the IAC agencies to accept projects and to establish priority
of accomplishment., ORE cannot avoid the prosecution of basic research
required to support the production of National Intelligence, and to
support Special Operations in Which CIA engages, The effort spent on
basic research will not be uniform among the several Divisions, but
will vary according to gaps created by the unavailability of timely
information. For example, it appears that D/EE is wholly justified in
engaging in full-scale basic research, with the requirement, however,
that DIRE. Economics and Transportation, do not duplicate the effort
of one another.
Admittedly, the NIS voles when complete, will not obviate
the necessity for continued basic research by the Area Desks, since
they are specifically designed for use by the strategic and tactical
military planners, and not for the intelligence analyst. But, while
the NIS compendium of basic information may not fulfill the needs of
the analyst by reason of its length, breadth and degree of detail,
it is anomalous to contend that basic facts recorded by the NIS group
should differ from basic facts gathered by ORE analysts. The issue
then becomes one to ascertain which reporter has correctly stated the
facts, if there has been a disagreement. But if the development of
the NIS work is to become embroiled in extended inquiry, the job will
never be done. The only practicable working procedure must provide
for the resolution of all disagreements by the NIS Coordinator, ir-
respective of whether or not the ORE analyst prevails. This procedure
should not, however, operate to ignore the Area Analysts entirely; as
NIS manuscript is prepared it should,without exception, be referred to
them according as their respective interests appear.
4. Requirements
Tab (C) to reference (a), on "Information Requirements" which
was addressed to COAPS under date of 25 May 1950, was answered in detail
by CORPS memorandum to Management, dated 7 July 1950.
Tab (D) to reference (a) "Proposed Plan for Realignment of
Certain Agency Functions" dated 10 July 1950, which was forwarded to
the several ADs and Staff Chiefs, was answered by COAPS memorandum to
Management under date of 19 July 1950. In this latter memorandum, COAPS
agreed to the proposed realignment of Agency Functions with certain
reservations.
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5. Collection
While COAPS concurs in Management's recommendations on
Collection, it is suggested that the items listed in Tab (E) be held
in contemplation in the course of the preparation of general collection
guides. But we may just as well be realistic in our normal desire for
bigger and better collection effort clear across the board, and recog-
nize that under the existing directives (actually agreements) which
control inter-agency relationships, we are almost wholly dependent upon
the other agencies for overt collection abroad, and moreover, each in
truth assigns priorities governing the activities of its own field
organization.
Unless and until the existing basic directives are so modified
as to vest in the DCI, power to direct, there is ample justification
for the establishment of an overt field reporting service in foreign
areas. However, coordination of the existing "collectors" is preferable
to adding another collector in the field.
Referring to Tab (F'), COAPS persists in an attitude which
encourages informal inter-office liaison at the working level, as not
only desirable, but as essential to the functioning of CIA as an entity,
instead of as a sporadic array of exclusive interests. Such liaison
should be exercised within the knowledge and concurrence of the ADs
concerned, however..
The suggestion that FDD translators be assigned to ORE and OSI
to serve as scanners for analysts who lack the language skills, has con-
siderable merit. However, FDD has been endeavoring to augment its staff
over the period of the past two years, but acquisitions have been pain-
fully slow, due principally to the stringent security clearance process
which presently enables acceptance of only 10% of the total applications.
Accordingly, FDD is in a poor position to dissipate its limited trans-
lation pool by remote assignment. It is suggested that ORE on its own
initiative might propose an increase in T/O to provide for the employ-
ment of a small number of linguists possessing the desired specialized
qualifications.
Referring to Tab (G), again inter-office liaison, at the
working level in.order to foster better understanding between analyst
and collector, is to be encouraged, as stated above. The actual formu-
lation and processing of a requirement which requires field collection,
however, must conform to approved procedure, and be handled through OCD.
It is gratifying to note in Tab (H), the expression of growing
confidence in the ability of OCD to provide satisfactory service to the
ORE and OSI analysts. The more fully OCD enjoys the cooperation of the
information users in the production organization, the better will OCD be
able to satisfy the needs of the latter. The retention of reference
files by analysts is not objectionable, provided they remain small and
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are limited to reference material of current interest.
The suggestions proffered by the analysts for improvement ooof
the service rendered by OCD, if followed through, should
the distinct advantage of the former. The virtue of this type of Survey
lies in providing opportunity for a correlative airing of views. Largely,
the recorded suggestions are desirable; some are not attainable failing
a prohibitive increase in force, still others will undergo gradual im-
provement over a considerable period of time. But the maximum ibenefit
is derived from bringing the problems and gripes out into the open..
where all can gain an objective view of them.
6. Information Control and Reference Activity
It is agreed that the Information Control activity of ORE is
excessively heavy, and involves an unwarranted expenditure of time and
manpower in relation to the total ORE effort. COAPS accordingly concurs
in the recommendation that the plan presented in Management Memorandum
to ADORE, dated 29 November 1949, be implemented at this time.
7. Administrative Considerations
The most significant recommendation submitted by Management
under this heading is that for satisfactory working space for those
employees whose regular job assignment requires that they engage in
analytical and creative thinking. The existing situation which finds
analysts grouped together in spaces sdmich admit of no degree of indi-
vidual privacy for thought or for purpose of consultation, is wasteful
to the point of becoming intolerable. Two persons engaged in such
mental effort, can occupy the same partitioned space reasonably, but
additions to this number only results in a rapid decline in satisfactory
output.
8. Review of this combined Management Survey Report has been
unduly time consuming, due to the piecemeal issuance and organization
of the report material. Had the report been a single manuscript instead
of a collection of several elements, initially issued separately, it
could have been digested more expeditiously and with greater facility.
PRESCOTT CHILDS., Chief
Coordination, Operations
and Policy Staff
cc: Management Officer
AD/ORE
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 Ufface .Memorandum ? UNITED STATES GOVERNMENT
STANDARD FORM NO. 64
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TO i
FROM :
?ianaZement Officer DATE: 11 August 1950
Acting
Assistant Director for Operations
SUBJECT:
Suggestions resulting from Management Staff Studies of ORE and OSI
Reference:
a.
b.
Your memorandum to 00 "Suggestions for Improvement of 00 Service
resulting from Management Studies of ORE and OSIU dated 14 J,ly 50
Your memorandum to COAPS et.al. "Sug estions for Improvement of
Collection Facilities (etc.)11 dated 14 July 50
25X1A7B
1. The constructive suggestions of your staff as transmitted by reference
memoranda have been studied by this office and will be hel')fill In Planning our
operations. Although many of the points raised are acarcely ner.w, suci as the
provision of more adequate translation service, or expansion of the program for
the exploitation of aliens, we appreciate the objectivity of your coAnneits, and
believe that some of the ,problems may be solved by a joint approach and ~3y imuale-
mentation of some of your suggestions by our respective staffs.
2. Detailed discussion of each of your su-ggestions is contained, insofar
as each division is concerned, in one of the attached memoranda from the Chiefs
Contact Division, I and Foreign Documents
Division. I concur with the remarks of the division chiefs, and believe that
each point has been satisfactorily covered. Action will be taken as indicated in
the divisional memor nda. Two points were, however, inadwirtently omitted in the
attached discussions:
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3. With regard to your suggestion on the use of private translating
services to supplement the translation facilities of FDD (reference a Para 5b (1) ),
it is believed that the current tentative plan to establish an auxiliary pool
of uncleared personnel to translate unclassified material under the direct
supervision of FDD would be more efficient and less expensive than contractual
arrangements -with a commercial service. Cost data supporting this opinion are
included in the FDD attachment. It is requested that further plans for such a
separate "translation service" be developed jointly by your staff and representa-
tives of this office.
FOIAB3B
10, B. KIRKPA CK
Attachments (3)
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 Office Memorandum ? UNITED STATES GOVERNMENT
TO ssistan t Director for Operations
FROM . Chief, Contact Division
DATE: 7 August 1950
SUBJECT: Management Officer's Suggestions for Improvement
of OO/C Service
1:EFRRENCE: Memorandum from Management Officer to AD/00, dated 14 July 1950,
Subject: Suggestions for Improvement of 00 Service Resulting from
ilana{ement Staff Studies of ORE and OSI.
In compliance with the instructions contained on y=our 28 July
routing slip, Contact Division offers the following continents
on applicable paragraphs of the reference memorandum. Para-
graph numbering corresponds to that of the reference.
"2. Satisfaction with 00 service to t'rae production analysts closely paral-
leled the degree to which communication had been established between working-levels
of 00 divisions and the production offices. The best illustration offered was that
of ORE'S Latin America Division. The analysts of this Division emphat'!..cally stated
that OO/C rendered by far the best services of all collection facilities. The
detail of a -field collection specialist to D/LA proved of unquestionable value to
both D/LA and to OO/C."
Comments Contact Division agrees that satisfaction with 00 r;ervice to
the production analysts closely parallels the degree to which communication has
been established by the working-levels, although this closeness of liaison is only
one of several factors which. make service satisfactory. All branches of the
Division have been instructed to work clos_oly with their opposite numbers in ORE
and OSI. The major impediment to even closer liaison has been discussed frequently
--as a personnel problem--sith ORE. In fact we have told ORE that the most desira-
ble procedure for handling requirements would be as outlined in ORE's own memorandum
of 10 April 1950, addressed to the Executive, Management Officer, and the Chief,
COAPS, subjects Requirements. Grateful for the compliient paid to our Latin
American Branch by the Management Officer, ti?:e neverthel_~ss believe that this branch's
record on successful liaison is representative of rather than an exception to the
record of all the branches.
"3. Contact Division - Specific suggestions for the iriproveraent of the 00/C
service to ORE and to OSI follow:
"a. Suggestions relating to content and coverage includes
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"a. Include more comment and interpretation of the collector in
information reports. Fuller information about enclosures, such as
.authorship, circulation, reaction of recipients to the document, would
be helpful. Also, it was suggested that at least the table of contents
of foreign-language enclosures be translated, and, if possible, an
English-language resume of the foreign-language enclosure be included."
Comments Contact Division believes that it complies in most cases with
the suggestions made in this subparagraph. However ue will attwipt to
expand information about authorship, circulation, and reaction of
recipients to the documents disseminated.
A. Include more opinion of the sub-source on the significance of
the information he is reporting."
Comments Contact Division always has emphasized to its collectors the
value of the Opinion of the sub-source on the significance of the infor-
mation. We mill continue to emphasize this value, particularly ~:-=hen the
information is technical in nature.
"c. Follow-through to conclusion in subsequent reports, situations
reported as impending; developments."
Comments Agree*
"d. iIark open-literature enclosures, submitted with classified reports,
tunclqssified' to puree it easier handling."
Comments For same-time open-literature enclosures have been giv,n the sane
classification as the coverin 00-B report, by your direction. Contact
Division recommends, h.owevey, that enclosures be permitted to seek" their
natural security level, down to and including T 'STRICTER, without regard
for the classification on the covering 00-B report.
V. Report back to the requestor on the status of a requirement when
delays are experienced in the collection of the desired information."
Comments The mechanics of such regular status reports would be formidable.
If the direct liaison proposed in paragraph 3a(2) of the 7 August letter is
approved, informal status reports can be rendered in that fashion.
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MANAGEMENT STAFF STUDY OF THE NATIONAL INTELLIGENCE SURVEY DIVISION
OFFICE OF REPORTS AND ESTIMATES
Findings:
The inter-departmental character of this activity has created a hiatus be-
tween this Division and other Agency activities. This separation has given rise
to conflicting opinions as to the responsibilities of the Division and the extent
to which Agency policy should govern the activities of the Division. (See Tabs 1,
2, 2A and 2B.)
a. The requirements of the regional and functional divisions of the
Agency's production offices for basic intelligence are not fully covered.
(See Tab 1 and also Tab 2A of the Regional Division Staff Study.)
b. The criticisms of Chapter Sections by production analysts in the
Office of Reports and Estimates are not fully reconciled. (See Tab 1 and
also Tab 2B of the Regional Division Staff Study.)
c. The regional and functional analysts of the production offices do
not participate in formulation of requirements for or in the maintenance
phase of the National Intelligence Survey Program. (See Tab 1.)
d. Dissemination of the finished product is effected under policies
established by the Program's Inter-departmental Committee and is adminis-
tered by the Agency's National Intelligence Survey Division rather than
under Agency policies established and administered by the Assistant
Director for Collection and Dissemination. (See Tabs 1, 1A, and 1B.)
Likewise the inter-departmental nature of this activity is responsible for
the administrative difficulties experienced within this Division. (See Tab 1.)
a. The formal organization and staffing pattern of the Division is not
operative in the day-to-day work activity of the Division. (See Tab 1.)
b. The shortcomings of Chapter contributors have required time-consuming
review at the expense of the more important coordination function. (See Tab 1.)
c. A considerable amount of time is devoted to maintenance of control
and progress records. (See Tab 1.)
Recommendations:
1. The National Security Council Intelligence Directive No. 3 be rewritten
to clarify Agency responsibilities in the National Intelligence Survey Program.
(See Tabs 1 and 2.)
2. Inter-departmental action be taken to provide maximum support, recognition,
and competence in the National Intelligence Survey activities of the governmental
agencies charged with Chapter and Section responsibilities. (See Tabs 1 and 2.)
3. Dissemination of the National Intelligence Survey be recognized as an
Agency function and such dissemination be effected in accordance with Agency
policies. (See Tabs 1 and 2.)
Basic Documents Relating to the Study:
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Tab 1 - The Management Study with Attachments an
Tab 2 - Comments of the Assist for Reports and Estimates on the Study
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July 1$, 1950
Assistant Director for Reports and Estimates
Management Officer
Management Staff Study of National Intelligence Survey Division, ORE.
0
P
Y
1. A Management Staff study of National Intelligence Survey Division of
ORE during the week of 3 July 1950 generally found D/NIS to be a well-administered,
efficient organization. The staff was well-oriented, specific assignments had
been made to each staff member, and such assignments were being effectively
executed. The staff members expressed enthusiasm for their jobs and harmonious
relationships appeared to exist. The considerable amount of work processed by
this Division during the past year likewise testifies to the efficiency of the
organization.
2. Findings:
a. The activity of D/NIS is limited to that phase of basic intelli-
gence which is contained within the framework of intelligence objectives
and outline of the National Intelligence Survey Program. No consideration
has been given to the provision for and coordination of basic intelligence
support outside the purview of the NIS Program, which may be required by
CIA and other intelligence agencies of the Federal Government.
b. Coordination responsibilities exercised by D/NIS have been
exclusively related to coordination of the production of component parts
of the NIS publications being produced in designated agencies of the
Federal Government, including three organizational units of CIA. Little
attention has been given to coordinating:
(1) ORE regional and functional division requirements by
specific geographic area for basic intelligence.
(2) The support to be rendered to contributing agencies
of the NIS Program by 00 and OCD.
(3) For budget purposes all phases of CIA production
and support rendered the NIS Program.
c. Responsibility for policy decisions concerning the NIS Program
are vested in an NIS Committee composed of representatives of agencies
represented on the IAC, with CIA chairmanship of such Committee. Policy
determinations regarding the scope of.NIS activity are referred by this
Committee, through the Director of Central Intelligence, to the Intelli-
gence Advisory Committee and the National Security Council, when applicable.
Joint Chiefs of Staff recommendations are generally solicited and followed.
Also, Joint Chiefs of Staff recommendations are the basis of the priorities
established for production of NIS publications. Responsibilities have been
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assigned to specific agencies for Chapteercoordination of Production
General outlines for Chapters and Sections have been established by the
NIS Committee Responsibilities for definition of substantive content
of Sections to be covered within the (general outline framework for each
geographic area have been delegated to the contributing agencies. Like-
wise, responsibilities for determination of accuracy of substantive con-
tent rest with the agencies assigned responsibility for Chapter coordination,
although the NIS is generally considered as a CIA publication. Delegations
as set forth above give little consideration to priority of production and
coverage required for certain CIA intelligence activities and the interests
of other agencies such as the National Security Resources Board.
d. Problems encountered in the production of NIS materials by con-
tributing agencies are well-expressed in the annual report now being
prepared by the Chief, National Intelligence Survey Division. Briefly
these problems include:
(1) Poorly qualified personnel in contributing agencies.
(2) Inadequate staffs in contributing agencies.
(3) Division of staff time between NIS production and
departmental projects, as governed by pressure of Agency
workload.
(1.) Inadequate Agency support of the NIS Program, par-
ticularly at the high-levels.
Noncompliance with assigned deadlines.
Insufficient exploitation of available data.
Deficiencies in field collection capabilities
e. Working effort within D/NIS is devoted to control of and reporting
on progress of total production effort, to final review of finished Sections
of NIS Chapters submitted by Chapter coordinators for publication, and'to
processing materials through the various publication phases resulting in
final publication of the finished product.
(1) A considerable amount of time is devoted to
maintenance of controls and preparation of statistical
charts and graphs to report production progress.
(2) Review of Sections submitted by contributing
agencies has been time-consuming and difficult, largely
because of lack of uniformity in copy received and inade-
quate editing within the contributing agencies. These
deficiencies can largely be attributed to "growing pains"
and it is expected that copy received will improve as con-
tributors learn about former mistakes and uniform standards
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are adopted. As copy improves, so will the pro uc lon editors. Presently, a small backlog exists. Also, the character
of the editorial task will change from less review to more coordi-
nation and guidance of the product during its initial stages.
(3) D/NIS has made excellent progress in codifying editorial
instructions and establishing editorial policies and standards.
A fairly comprehensive guide is now in the hands of contributing
agencies. The reproduction processes used (ditto and mimeograph)
detract from usefulness of the guide because of difficulties in
reading and limitations on numbers of copies which can be supplied
to the contributing agencies.
(4) While each Section of the NIS is sent to appropriate ORE
and OSI regional and functional divisions for review and comment,
this action is not contributing too greatly to the quality of the
finished product. This can be attributed to D/NIS policy of yield-
ing to the contributor when viewpoints of ORE-OSI reviewing analyst
and the contributor cannot be reconciled, to marginal interest and
participation of ORE analysts in the NIS Program, and to no provision
for expressing non-concurrence in the finished draft.
(5) Presently, ORE-OSI regional and functional analysts have
assumed little responsibility for initiation or control of require-
ments for collection resulting from gaps and unreconciled factors
included in the NIS. This responsibility has resided with the
contributing Agency. Likewise, little provision has been made
within CIA to solicit cooperation of ORE and OSI reviewing analysts
in directing pertinent data to be included in subsequent revisions
of NIS Sections to the attention of D/NIS.
(6) Publication Branch, while not responsible for original
graphic and cartographic effort, has, by reason of serious
deficiencies in the contributing agencies (except CIA), expended
considerable graphic effort not envisioned in this Program.
Fluctuations in personnel and lack of experience in the contributing
agencies is being overcome by constant liaison to insure adequacy of
materials initially.
(7) Information Control presently maintains one complete set
of published NIS materials in addition to the two sets maintained
elsewhere within D/NIS. As the production of these materials
increases, problems of safe-files and space will become acute.
f. Dissemination of the NIS product has been effected under policies
established by the NIS Inter-departmental Committee and administered by
D/NIS. OCD has performed the physical tasks of distribution and mainte-
nance under the direction and supervision of D/NIS. Presently, COAPS
has recommended that NIS dissemination be effected under Agency policies
established and administered by AD/OCD. Much discussion has been held
with little understanding of the basic difference of opinion regarding
this dissemination picture. (See Tab A, memorandum for Acting Executive
from Chief, COAPS, titled "NIS Publications", dated 15 May 1950; and
Tab B, memorandum to AD/ORE from Chief, D/NIS, titled "NIS Publications",
dated 23 May 1950.)
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g. The dissemination problem discussed in the preceding paragraph
and other findings relating to the non-integration of the NIS activity
into the CIA intelligence operation stem from one unanswered question,
namely, "Is the NIS an intelligence product of CIA for which CIA must
accept responsibility as to quality, coverage, accuracy, and dissemi-
nation?" Chief, D/NIS contends that the NIS is not a CIA product,
but the product of the various contributors, with each contributor
exercising full and final judgment as to the content, quality, and
dissemination of its product. He further believes that CIA responsi-
bilities are limited to the mechanical tasks of coordinating production
activity and of effecting final publication. Yet, within the intelli-
gence community, even by the officials of contributing agencies, the NIS
is considered and referred to as a CIA product. While NSCID No. 3 states
in paragraph la (4) "in such form as shall be determined by the Director
of Central Intelligence and the agencies concerned," paragraph la (5)
states "The Director of Central Intelligence shall be responsible for
coordinating production and maintenance and for accomplishing the editing,
publication, and dissemination of these National Intelligence Surveys . "
(Underscoring added. ) .
h. Organizational structures of the Office of the Chief and of the
Editorial Branch appear adequate for present operations. It was noted
that personnel assigned from the IAC at times served in other than
assigned positions, but this appears to be the best utilization of their
working effort. The workload of the three editorial sections vary so
considerable that no effort can presently be made to adjust.the strength
between sections to reflect workload. The table of organization of Publi-
cation Branch as presently constituted is not being followed in performance
of activities. Editorial functions are now being performed as a unit and
not split into sections as indicated on the present T/O.
3. Recommendations: It is recommended that:
a. The recommendations contained in memoranda to you titled "Management
Study of Regional Divisions of ORE", dated 14 July 1950, and "Factors to
be Reconciled Between the NIS Program and the Basic Economic Research
Activity of Eastern Europe Division, ORE", dated 14+ July 1950, concerning
basic research be implemented. Such implementation would provide closer
integration of ORE activity in the field of basic intelligence and definition
of the support responsibilities of ORE for the NIS Program.
b. Future budget presentations for the NIS Program activity within
CIA include mention of the support responsibilities, not only of ORE,
but also of OCD divisions and Foreign Documents Division of the Office of
Operations.
c. The problems set forth by Chief, D/NIS, in his annual report
which relate to coordination of the production effort with the agencies
represented on the IAC be referred to the Director of Central Intelligence,
when necessary, and such other action as can be taken within ORE be effected
to resolve the acknowledged problems.
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d. Immediate consideration be given to revise N0-CID No. 3 to clarify
CIA position as to whether the NIS is a product of CIA with the assistance
of the intelligence agencies or whether CIA is in a secondary position to
the NIS Interdepartmental Committee.
e. The working effort of the editors of D/NIS continue to be directed
toward coordination of, the NIS production in its drafting stages through
providing training and guidance to the working-levels of the contributing
agencies, thus enabling the initial production of higher-quality drafts
which would require less editorial review. Also this type of coordination
should substantially reduce the time-lag between cut-off date and publi-
cation date of the NIS Sections.
f. The editorial guides be further developed and be printed in
greater number of copies and in a more finished and usable forma (Note:
During the course of the survey, it was suggested that paper offset mats
be used, rather than ditto masters or stencils, in preparation of final
draft.)
g. A procedure be established which will provide for the issuance
of collection requirements by ORE reviewing analysts to provide data on
controversial statements appearing in NIS publications or omissions, when
such action is not taken by the contributing agencies. Also, that provision
be made for indicating possible discrepancies in published NIS Sections.
Likewise, provision should be made for inclusion in NIS maintenance files of
D/NIS of newly collected data received by ORE reviewing analysts, which data
may require incorporation in revisions of NIS Sections.
h. The employment of machine record facilities in the maintenance of
control and statistical records be explored.
i. Dissemination of the NIS be recognized as a CIA function and such
dissemination be effected in accordance with CIA dissemination policies,
with due consideration being given to the desires of contributing agencies.
j. The Publication Branch T/O be realigned as follows:
Publication Branch
Chief 1 GS-12
Assistant for Graphics(Liaison) 1 GS-9
Assistant for Maps (Liaison) 1 GS-9
Clerk-stenographer 1 GS-4
Publication Section
Cartographer Assistant for Publi-
cations) 1 GS-11
Editorial Clerk 1 GS-6
Editorial Clerk 3 GS-5
Editorial Clerk 3 GS-4
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Production Section
Cartographer Assistant for Pro-
duction)
1 GS-9
Illustrator
3 GS-7
Illustrator
6 GS-6
Publication Branch Total: 22
/5/
25X1A9A
Attachments: Tab A and Tab B
cc: Acting Executive
Chief, COAPS
Budget Officer
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C
0
P
ER-1-x+01 y
15 May 1950
25X1X7
25X1X7
MEMORANDUM FOR: Acting Executive
SUBJECT: NIS Publications
1. We recognize the importance of the NIS basic intelligence
publication, but our discussions over a period of months have been
about the real current need for such a large number of the NIS now being
produced, distributed and stored, and the expenses in producing them
at this time.
2. We understand that the JANIS publications totalled 3,000 copies
each. Warehouses are now filled with unused copies. When the NIS
replaced JANIS, 1,200 copies were published including the 150 copies
which F__ I This number is now down to 800 and it is
hoped that 750 copies will be adequate in July in place of the present
800, and it may be possible to bring it down to 600. The Navy, for
example, recently cut its "requirements" from 300 to 150. The present
largest "requirements" are:
- 150 copies
y - 100 it
Navy - 150
Air - 14+6
State - 13 "
From this number they can maintain two or three complete sets and many
dozens of separate sections so that this publication can probably be used
in each agency by many hundreds of people. We think that nowhere near
that many people need copies for current use.
3. One master set with necessary negatives for maps and cuts will
be kept by CIA for use in rapid reproduction to meet future emergency
needs, when a large number of copies will undoubtedly be useful. The
Chief, Reproduction Branch of CIA's Services Division, Administrative
Staff has assured us that the present reproduction system is best, rather
than changing to a duplimat system in storing the stencils for future use.
4+. CIA will also keep some published extra copies for current and
future unforeseen needs (not of an emergency nature). Instead of the pre-
sent 4+0 bound copies and 40 unbound copies in this extra stock, we think
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that a very few number of bound copies and a very few dozen extra copies
unbound (to the nearest 50 in the printed run) will be enough until
the emergency comes. 25X1 X7
5. If 150 of the printed run of 800 is adequate
we still think that a much smaller number than the present would be
adequate for the United States.
6. Accordingly COAPS recommends that:
a. The NIS Division of the Office of Reports and Estimates
in the CIA and the NIS interdepartmental Committee devote them-
selves to the substantive production of the National Intelligence
Surveys and give up factors pertaining to the distribution of
their end product.
b. OCD survey the components of CIA again and also the outside
agencies (members of the Intelligence Advisory Committee and
eventually maybe other Government departments) to determine how
few (not how many) copies of the NIS are now really needed in
25X1 X7 printed form for current needs (both bound and unbound). Maybe
the 150 now distributed can also be cut down.
It should be taken into consideration that an unbound set can be
divided for use by many different components who work for com-
plementary or different parts of the world and do not overlap.
It should be noted that such basic intelligence publications
undoubtedly are not consulted daily by the users; so a small
section can easily borrow this publication when necessary from
a nearby larger section in the same agency. Every office does
NOT need its own copy of this voluminous and expensive publication
or even the section pertaining to its own country when such a
section is readily enough available for its use when needed.
This determination should also be based on (1) the small reserve
stock maintained in CIA and (2) the fact that CIA will print
additional copies to satisfy utilization needs. (Paragraphs 3
and 4 above)
/5/
PRESCOTT CHILDS, Chief
Coordination, Operations
and Policy Staff
cc: Management
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AD/ORE
AD/OCD
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To:
Assistant Director, ORE
23 May 1950
From:
Subject:
Chief, NIS Division, ORE
NIS Publications
Reference:
Memorandum, Chief, COAPS, dated 15 May 1950,
to Acting Executive, CIA, subject as above.
1. It appears that the purport of the above-cited reference is
tacit admission by COAPS of the correctness of the ORE position as set
forth in the memorandum of AD/ORE, 27 March 1950, to Chief, COAPS,
Subject: "NIS Program - Curtailment of Scheduled Reproduction of Copies
for Dissemination and Storage".
2. The meaning of Paragraph 6a is unclear. From the beginning,
the Chiefs of the IAC Agencies have looked to their representatives on
the NIS Committee to act as their spokesmen on matters pertaining to NIS
dissemination requirements as well as all other NIS matters. The CIA
representative on the NIS Committee, being concurrently Chief, D/NIS, is
charged with the control of publication of the NIS and hence, must be
constantly and currently familiar with over-all dissemination require-
ments. In short, policy control of dissemination of the NIS has always
been considered, and logically so, a major function of the NIS Committee.
The mechanics of dissemination, including the conduct of survey require-
ments, has always been the function of the dissemination components in
the IAC~Agencies and OCD in CIA.
3. To date, no survey of the NIS requirements of non-intelligence
Government agencies has been made. Thus far, only the Department of
Commerce has taken the initiative in requesting certain NIS elements
and is receiving these elements. It is believed, however, that there
may be other such agencies which have legitimate requirements for the
NIS but are unaware of their existence. Hence, it is intended in the
near future to have OCD conduct a requirements survey of the more
important of these agencies. (NOTE: This matter was discussed by the
NIS Committee on 9 May 1950.) The additional requirements determined
by this survey will operate to reduce the reserve stock of unbound
copies of NIS now on hand.
L1. COAPS has already twice taken up the matter of reduction of NIS
requirements directly with the IAC Agencies: once through agency members
of COAPS and once by memorandum of the DCI dated 9 February 1950 to the
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t~~l
Chiefs of Intelligence of the Agencies. It is felt that a reopening of
the issue with the IAC Agencies would be inappropriate, since these
Agencies have already made reply to the DCI that they are keeping the
matter under continuing review.
5. There is no objection to resurvey by OCD of the requirements of
other recipients of NIS, including the CIA. This survey will be requested
by D/NIS at the same time as the survey of non-intelligence Agencies
indicated in Paragraph 3 above.
(SIGNED)
25X1A9A
24 May 1950
To: Chief, COAPS
1. Approved and forwarded.
(SIGNED) THEODORE BABBITT
Assistant Director
Reports and Estimates
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7 August 1950
SUBJECT: Management Staff Study of National
Intelligence Survey Division, ORE
1. This Office concurs in the attached memoran-
dum from the Chief, D/NIS, commenting on the subject
Management Staff Study of that division.
2. Two copies of the D/NIS comments are forwarded
herewith for your information and such action as you
may deem desirable.
FOIAB3B
Assistant Director
Reports and Estimates
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Assistant Director, ORE
Chief, NIS Division, ORE
Comments on Management Survey Report
REFERENCES: A. Memo of Management-officer to AD/ORE,
dated 18 July 1950, Subject: Management
Staff Study of National Intelligence
Survey Division, ORE (Enclosed)
Be Memo of Management Officer to ADORE,
dated 14 July 1950 - Discussion of
Ilanagement Staff Study of Regional
Divisions which are of concern to
Chief, D/NIS.
3 August 1950
1. As a preface to comments on specific points raised in the report of
the Management Officer on D/NIS operations and the NIS Program, a brief review
of this program appears to be necessary in order that there may be a complete
understanding of all the facts bearing upon the issues involved.
2. The NIS Program has been implemented in strict compliance with the
provisions of NSCID No. 3, dated 13 January 1948. The specific provisions of
this directive that are relevant in the present case are as follows;
a. "An outline of all basic intelligence required by the Govern-
ment shat be prepare y e IA n collaboration with the approprYate
agenc es. -
be, "This outline shall be broken down into chapters, sections,
and sub-sections which shall be allocated as production and maintenance
responsibilities to CIA and those agencies of the Government which are
beat qualified by reason of their intelligence requirements, produ on
capabilities, and dominant interest to assume the, production and
maintenance responsibility."
c. "Changes in the outline or allocations shall be effected by
agreement between the Director of Central Intelligence and the agencies
concerns."
d. "The National Intelligence Surveys will be disseminated in
such form as shall be determined by the Director of Central Intelligence
and the agencies oonoerne
e. "The Director of Central Intelligence shall be responsible
for coordinating production and maintenance and "or accornplishin the
editing,- pu cation, an seem na ion o t ese National me genoe
Surveys an shall -m-aka such requests on t' ie` aganc a"s` as are necessary
for thsir proper development and maintenance."
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STMQ
3. An interdepartmental ad hoc committee, with the CIA member designated
as chairman, was established by-Ge IAC to consider and formulate plans f or
the implementation of the NIS Program. The final report of this committee was
approved by the IAC Agencies with a few exceptions on minor points, none of
which are germane to present issues. The Director of Central Intelligence in
DCI 3/1, dated 8 July 1948, directed that the Basic Intelligence program be
conducted in accordance with procedures developed and agreed upon by the
interdepartmental ad hoc oommittee.
4. The approved report of the ad hoc committee, as amended, provides for
the establishment of a permanent NIS Comm ttee with the CIA member as Chairman
and defines the functions of this'oommittee and of the IAC Agencies as follows:
a. NIS Committee
(1) The NIS Committee consists of representatives of the
Director of Central Intelligence and the Chiefs of the
Intelligence Agencies of the Departments of State, the Army,
the Navy, and the Air Force. The representative of the
Director of Central Intelligence is ex officie chairman of
the committee. It also includes an advisory member from the
Joint Staff who shall:
(a) Be thoroughly familiar with the basis
intelligence requirements of the Joint Chiefs of
Staff (JCS).
(b) Keep the JCS informed of the progress of
the NIS Program.
(c) Keep the NIS Committee informed of changes
in the JCS requirements.
(2) The NIS Committee performs the following functions$
(a) Considers and recommends for Intelligence
Agency approval over-all policies for the NIS Program.
(b) Determines the scope and treatment of each
HIS to be produced.
(o) Allooates responsibility for production and
maintenance of NIS in accordance with the intelligence
requirements, production capabilities, and dominant
interest of the Intelligence Agencies concerned.
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(d) Establishes NIS production and maintenance
schedules based upon JCS priorities and agency
capabilities.
(o) Promulgates procedures and instructions for
the preparation, review, editing, and submission of
NIS contributions.
(f) Recommends to CIA measures necessary for the
coordination of the NIS Program.
b. The Central Intelligence Agency performs the following funotionss
(1) Provides over-all coordination of the NIS Program.
(2) Produces those elements of NIS allocated to it for
production by the NIS Committee.
(3) Furnishes certain common services which can best
be done centrally.
(4) Edits NIS contributions, provides advisory sub-
stantive review, and arranges for the publication of NIS,
(5) Disseminates NIS in accordance with Intelligence
Agency agreements,
co The IAC Agencies (State, Army, Navy and Air Force) perform
the following functionss
(1) Provide a member and alternate members of the NIS
Committee. This member represents, and speaks for, the
Chief of the Intelligence Agency of the Department from
which he is accredited.
(2) Produce and maintain the NIS elements which have
been allocated by the NIS Committee as production responsi-
bilities.
(3) Implement collection effort which may be required
for NIS production and maintenance*
d. The non-IAC Agencies perform the following functionss
(1) Produce and maintain portions of NIS when
explicitly assigned that responsibility by the NIS
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Committee or by an Intelligence Agency with the approval
of that Committee.
(2) Furnish Intelligence Agencies with material for
integration into NIS by those agencies.
5. Included as an integral part of the approved ad hoc committee report
were the followings
b. The JCS Priority List
c. Tentative Allocations of Responsibility for Preparation
of the NIS
d. The NIS Outline and Guide
a. Standard Editorial Instructions for the NIS
It is worthy of mention at this point that items a, c, d,
and a are the products of interdepartmental effort upon rich
there was complete agreement between CIA and the IAC Agencies.
6. The question of paramount importance is whether or not the NIS is an
interdepartmental project or a CIA project. The answer to this question appears
to be clear. NSCID No. 3 directs the activation of the NIS Program by the use
of such terms as "the CIA in collaboration with the appropriate agencies",
"by agreement between the Director of Central Intelligence and the agencies
concerned" and, "shall be determined by the Director of Central Intelligence
and the agencies concerned". At no place in NSCID No. 3 is it stated, or
implied, that the NIS is to be a product of "CIA with the assistance of the
intelligence agencies". The interdepartmental character of the NIS Program
is further recognized by the following aotionsr
a. Establishment by the IAC of an interdepartmental ad hoc
committee to-formulate plans and procedures for the acoompl3saent
of NIS Program objectives.
b. Approval by the IAC of the final report of the ad hoc
committee which recognized and provided for the c onduetie
NIS Program as an interdepartmental project.
co Issuance of directives by the Director of Central
Intelligence requiring conduct of the NIS Program in accordance
with the approved report of the ad hoc committee.
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From its inception it is evident that the NIS Program has been
considered by the NSC as an interdepartmental project; that it has been so
considered by the IAC, the Director of Central Intelligence, and all those
who have had an active part in the implementation of this program.
7, The allocation of production and maintenance responsibilities was
made to "CIA and those agencies of the Government which are best qualified
by reason of their intelligence requirements, production capabilities, and
dominant interest." In those fields where CIA meets these requirements the
allocation has been assigned to CIA, such as in the case of Map Division, ORE.
Later, OSO/CIA requested allocation of Section 56 "Intelligence and Security"
which was originally assigned to OI1/State, and this was eventually done.
OSI/CIA was repeatedly requested to assume a more active part in the production
of Chapte VII contributions. It was only recently that OSI accepted respon-
sibility for coordination of Chapter VII and specific allocation of production
for Sections 70 and 73 of that Chapter. In short, there is ample opportunity
for CIA to assume production and maintenance responsibilities under the NIS
Program where it is the beat qualified by reason of the aforementioned
conditions.
8. The Management Officer contends that Regional Divisions in ORE should
assume responsibilities which they do not have. The Chief, D/NIS has
consistently held that, in those fields of basic intelligence where CIA does
not have primary responsibility, its position properly is an advisory and
coordinating one and not a controlling one. That this procedure is eminently
successful is attested by the contributorst acceptance of all fundamental and
supportable comments arising out of the review by D/NIS and the Regional and
Functional Divisions of ORE. Quantitatively, 65% of all contributions received
during the past year have been given major revisions by the contributors as a
result of this reviewing process. Moreover, the large majority of instances
in which the Regional Division comments have not been accepted by the contri-
butors were due to new information arriving after the cut-off date. The
heavy work load and lack of agency capabilities made it infeasible in those
instances to extend the cut-off date without seriously affecting the production
schedule as a whole. As emphasized to the Management Officer during the course
of his survey of D/NIS, this situation will gradually be improved as production
flow and agency capabilities become better balanced. This has been considered
at some length in the "Report of the NIS Program - Fiscal Year 1950".
9. Were CIA to "call the turn" on substantive matters, it would either
have to assume complete responsibility for the NIS or attach dissenting
opinions throughout the publication. The former alternative is not possible
without considerable augmentation of ORE necessary for the rewriting of
contributions and for the research staff to check all basic data. For instance,
to do this for "ports and naval facilities" would require the maintenance of
files and the availability of specialists commensurate with those now producing
this material in Navy. As for the latter alternative, CIA would be placed in
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the position of tacitly approving all the material in a contribution to which
it did not dissent. Since the contributing agency does have responsibility
allocated to it for designated categories of basic intelligence, it is only
logical that where there are differences of viewpoint, not subject to precise
confirmation, the contributing agency's view prevail. Moreover, there are
many categories of intelligence in which ORE has no real capabilities, such
as oceanography, coasts and landing beaches, and armed forces. In the last
analysis, there is no basis under present directives to permit CIA's views to
prevail over those of an IAC Agency in a category of basic intelligence where
that agency has allocation of production responsibility. The efforts of the
NIS Coordinator have been directed toward strengthening those agencies,
coordinating their activities, and in providing editorial and substantive
guidance to the extent of CIA's capabilities.
COMMENTS ON REC0MMENDl1TIONS OF MANAGE1VIENT SURVEY REPORT
10. Recommendation a
The "Management Study of Regional Divisions of ORE" has been previously
Commented on in this report. As to the "Factors to be Reconciled Between the
NIS Program and the Basic Economic Research Activity of Eastern European
Division, ORE", the below comments refer to subparagraphs of Paragraph 6c
a. The "Standard Instructions for the NIS" have been made
available to all Divisions of ORE in amounts which they have
requested. These Standard Instructions contain the Outlines and
Outline Guides, the Allocation of Production Responsibilities, the
NIS Areas, Editorial Instructions, and the current Production
Schedule*
be Economic values in the NIS have been standardized to a
practical extent by inter-agency agreement. It is not feasible
to standardize all economic values for all areas. Where there is
variation in the values, D/EE has opportunity to comment upon
contributions received for review.
c. The priority of production assignment cannot be geared to
every Regional Division or to every Intelligence Agency. For that
reason, JC3 priorities are used as the basis for NIS production.
This principle has been approved by the DCI, the IAC and the NSC.
As a matter of fact, all areas of interest to the D/EE are in the
highest priority category. The regional set-up in the contributing
agencies, however, makes it necessary to produce NIS on other areas
simultaneously in order that full utilization of area specialists
may be had.
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d. Copies of the "Allocation of Production Responsibilities"
have been made available to D/EE. These show, the agencies of the
Government which are participating in the NIS Program,
e. All contributors to the NIS Program are encouraged to seok
out information and expert opinion from their own agencies and
other agencies of the Government, including CIA,
f. Pre-publication drafts are available to any component of
,CIA upon valid requirements. D/EE analysts have had such drafts
made available to them on several occasions. D/NIS does not
automatically leave such drafts in the Regional Divisions in the
interests of reducing unnecessary dissemination of incomplete and
unfinished intelligence materials.
g. D/EE as well as other Divisions of ORE have direct liaison
with all agencies contributing to the NIS Program. Through these
channels, they can procure basic intelligence required by them.
Contributing agencies are responsible for initiating revisions of
NIS for which they are responsible when there is sufficient new
information to warrant such revisions.
Referring to yaragraph 7, the Management Officer says, "Consideration
should be given to institution of procedures for coordination of these two
basic intelligence efforts. Such actions would eliminate costly duplication
of effort within the Federal Government and would enhance the quality of the
intelligence product".
Comments Representatives of the Economic Division, ORB, assisted
the innTe gency committee in formulating the intelligence require-
ments of NIS Chapter VI "Economic". Since then there has been no
indication that the Economic Branch of D/EE is dissatisfied with the
NIS requirements or that it has capability to assume the production
responsibility for this Chapter on the Soviet orbit, which is
currently allocated to QR,/State with the assistance of the Armed
Forces Agencies and the Departments of Agriculture and Interior. If
such capability does in fact exist and if this is considered to be a
proper function of an ORE Regional Division, the Chief, D/NIB, should
be so informed in order that this matter may be laid before the NIS
Committee for initial consideration and recommendation regarding
reallocation of production responsibility.
Each Office .of CIA has been including NIS support in its own budget
proposals. DAIS does not see what advantages would accrue from this recommend-
ation, but does not object to it.
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12. Recommendation e
This recommendation has been carried out as a matter of course.
This recommendation has been dealt with at some length in preceding
commentary. In brief, NSCID No. 3 clearly indicates that the NIS Program is
a joint production and maintenance effort to which CIA, the IAC Agencies, and
other Government agencies each contribute in accordance with its intelligence
requirements, production capabilities and dominant interest; and that the
DCI is responsible for coordinating production and maintenance, and for
accomplishing the editing, publication, and dissemination of the NIS. In
consequence, the NIS is not a product of CIA alone; it is a coordinated product
in which CIA assumes the role of contributor and coordinator, and performs
services of common concern.
14. Recommendation e
This recommendation reflects the mission which the editors of D/NIS
have had from the ince.rtion of the NIS Program.
Full requirements for editorial instructions have been satisfied. When
all recommendations for changes and revisions have been received, the f inal
instructions will be reproduced in a more finished and usable form.
16. Recommendation ?
This recommendation is divided into three categories, namelys a) collection
requirements; b) discrepancies in published NIS; and o) NIS Maintenance files.
In respect to a), the contributing agencies are now charged with the
responsibility for initiating collection requests for gaps in the contributions
for which they have allocation of production. The Intelligence Agencies of
State, Army, Navy, and Air Force have issued directives to their field
activities to implement this matter. Divisions of ORE may at any time issue
collection requirements on matters at issue in the NIS. Current collection
procedures provide for checking such requirements to ensure that duplicate
collection requests are not sent to the field.
In respect to b) above, the directives of contributing agencies to
their field activities provide for checking discrepancies in published NIS.
In respect to o) above, it is considered that any attempt to provide
adequate maintenance files in D/NIS is wholly infeasible. That is a valid
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responsibility of the contributing agencies who have the staffs and the
voluminous files necessary to do a proper maintenance job, and which they do
as a matter of course in their day to day operations.
This recommendation is concurred in. However, the statistical records
maintained in DNIS will be further simplified to minimize the work load
whether it be done by hand or by machine methods.
18. Recommendation i
The question raised by Management Officer respecting the dissemination
of the NIS echoes the question raised by COAPS, which was commented upon by
Chief, D/NIS in memorandum to AD/ORE of 23May 1950. Initially, COAPS was
concerned about the number of copies of the NIS which were being disseminated.
25X1X7 Excluding the 150 copies tol hick requirement, incidentally, was
reached in agreement between the Director and the 25X1X7
dissemination requirements of the NIS are determined by the sum tots. of the
individual requirements of the Intelligence Agencies, the other Defense Agencies,
and certain non-Intelligence Agencies which OCD is now surveying. Apparently,
COAAS considers that CIA should determine the dissemination requirements of the
recipients of the NIS without reference to the latters' own wishes, for in
COAPS' memorandum to ADORE and AWOCD, dated 14 March 1950, it states, "it is
the opinion of COATS that the original publication of the NIS for peaebtime use
should be limited to a maximum of 100 copies". After learning some of the
facts at issue, COAPS by later memorandum of 15 May 1950, states, "If 150 of
25X1X7 the printed run of 800 is adequate for I we still think that a much
smaller number than the present would be adequate for the United States". On
two occasions COAPS has taken up the matter of reduction of NIS requirements
directly with the IAC Agencies, and both times the replies have indicated that
the Chiefs of these agencies, through the medium of their NIS Committee members,
were keeping the matter under oontinuing review. Recommendation of the
Management Officer is that "Dissemination of the NIS be recognized as a CIA
function and such dissemination be effected in accordance with CIA dissemination
policies, with due consideration being given to the desires of contributing
agencies". (Underline a e In e foot, that reflects hat is now b eiii-g-7one
the medium of the NIS Committee, which determines the desires of the
contributing agencies and so informs OCD. NIS dissemination policies can only
be determined by reference to the contributing agencies, since it is their
intelligence which isb sing disseminated. For those sections which CIA is
contributing, the dissemination policy is determined by CIA, specifically OCD
and I&SS. The present procedures for the dissemination of NIS are sound and
operate to the mutual benefit of all agencies concerned. Moreover, they are
consonant with present directives and policies.
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19. Recommendation 3
Management Officer correctly states that, "The table of organization
of Publication Branch as presently constituted is not being following in
performance of activities". The principle reasons for this area first, that
the Publication Branch has never been staffed sufficiently to permit section
organization as called for by the T/O; and second, that the incoming contri-
butions have varied so much in quantity and quality as to require a very
fluid organization to meet the situation. A similar situation has existed in
the Editorial Branch as well. When NIS production flow stabilizes it is
considered that the present organization of D/NIS will be more sound and
workable than the recommended one. No changes should be made until experience
has indicated what these changes should be. Moreover, there are major questions
of policy respecting the NIS Program which are now before the Director for his
decision and that of the '1AC. The nature of those decisions will affect the
rate of NIS production which in turn will have direct bearing on the size and
composition of D/NIB. In consequence, it is reoammended that no action be
taken on the reorganization of the Publications Branch until these matters
have been settled.
25X1A9A
Enclosed*
Reference A. (With original only)
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Office Memorandum e UNITED STATES GOVERNMENT
TO : Acting Executive
FROM : Management Officer
DATE: 20 September 1950
SUBJECT: Review of Comments of the Chief, National Intelligence Survey
Division on Management Staff Study.
References A. Comments of Chief, National Intelligence Survey
Division on Management Staff Study, dated 3 August
1950.
B. Management Staff Study on National Intelligence
Survey Division, Office of Reports and Estimates,
dated 18 July 1950.
1. Attached as Reference A are the comments of
which include a complete review and explanation of the concepts and
25X1A9A
inner workings of the National Intelligence Survey program, together
with quotations from all the basic documents, such as NSCID No. 3 and
the DCIDts, pertinent thereto.
2. Management feels that its recommendations contained in the
basic study Reference B are not only soundly conceived, but are
practicable. For example, Management stand on the fact that the Pub-
lication Branch, National Intelligence Survey Division, was not operat-
ing as constituted on the table of organization structure was that the
table of organization should be amended accordingly. Chief, National
Intelligence Survey Division replied "the table of organization for
the Publication Branch is not being following in performance of activi-
ties". Despite this acknowledgment, recommends that
no action be taken toward Branch reorganization* 25X1A9A
3. In essence most of these matters are relatively minor, the
major portion of the problem rests in a decision as to who is respon-
sible for the substantive content and distribution of National Intel-
ligence Survey materials. According to the Chief, National Intelli-
gence Survey Division, verbally and by the attached paper, the National
Intelligence Survey program is not the responsibility of CIA, but of
the National Intelligence Survey Committee, chaired by the Chief,
National Intelligence Survey Division. This would seem to create
a situation wherein a subordinate of the Director is superior thereto, and
such a concept is both confusing and conflicting. 25X1A9A
4. In Paragraph 6 of ReferenceA, states. "The
question of paramount importance is whether or not the National Intel-
ligence Survey is an interdepartmental project or a CIA project. The
answer to this question appears to be clear." The Chief, National
Intelligence Survey Division then quotes NSCID No. 3. It is obvious
that his interpretation regarding CIA responsibility of the National
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7
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Intelligence Survey program and that of this Staff are diametrically
opposed.
5. Management need not reiterate the old argument on dissemina-
tion, except to state that in our experience most recipients refer
to National Intelligence Survey materials as CIA publications, and
hold this Agency accountable for its substantive content and distri-
bution. This Staff has never indicated, nor suggested, that the
National Intelligence Survey Committee or the IAC Agencies should
not exercise some influence on the dissemination of the end product.
The dissemination authority currently in the National Intelligence
Survey Division is contrary to the Director's explicit instructions
that all dissemination functions of intelligence materials are
charged to the Assistant Director for Collection and Dissemination.
25X1A9A
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MAP DIVISION
OFFICE OF REPORTS AND ESTIMATES
Findings:
In general, this Division was found to be well-defined, efficiently
administered and operationally sound. During the survey, improved arrange-
ments were effected for the receipt and handling of materials utilized by
this Division. Continuing attention should be given to certain aspects of
this Division's operations:
a. Clarification of functional relationships with the Office
of Scientific Intelligence to effect maximum support to Scientific
Intelligence with no duplication of effort. (See Tabs 1 and 1A.)
b. Provision for orienting other segments of the Agency in
the services provided by Map Division and conversely for orienting
Map Division personnel in operations of the other segments of CIA.
(See Tab 1.)
c. Simplification of control and catalog procedures and records.
(See Tabs 1, 1E, 1F, and 2.)
1. Enhance production planning of Map Division operations and the
further integration of Map Division production with other production of
the Office of Reports and Estimates through:
a. Providing for Map Division representation on the Estimates
Production Board. (effected)
b. Publications Division providing Map Division with notice of
all newly received production projects. (effected)
c. Developing and implementing an over-all intelligence pro-
duction plan. (See Tab 1.)
2. Utilize newly-developed office machines, such as the "Thermofax",
to reduce workload of the Division. (See Tab 1.)
3. Simplify control and catalog procedures; particularly, install
the simplified catalog procedure developed during the course of the survey.
(See Tab 1E.) Note: Assistant Director for Reports and Estimates concurred.
(See Tab 2.)
Basic Documents Relating to the Study:
Tab 1 - The Management Study with Attachments A through G.
Tab 2 - Comments of the Assistant Director for Reports and Estimates on the Study.
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Office Memorandum ? UNITED STATES GOVERNMENT
TO Assistant Director for Reports and Estimates DATE: MAY 15 1950
FROM : Management Officer
SUBJECT: Management Staff Survey of Map Division, ORE
1. The Management Staff survey of Map Division, Office of Reports and
Estimates, discloses a well defined, efficiently administered and for the
most part operationally sound component of CIA. The functional statements
for the Map Division are attached as Exhibit "A".
2. The majority of the personnel, within the three branches comprising
the Division, have been associated with this function through its various
parent organizations.
3. Internal reorganizations within the Division, relocation of opera-
tions and institution of revised operating procedures as described in
this report will assist the Division in attaining maximum efficiency of
operations.
4. Problems involved in transition of the Division from the Depart-
ment of State to CIA have, for the most part, been resolved. However,
complete understanding or utilization of the Division's capabilities
have not been enjoyed by all components of the Agency.
5. Map Division personnel have, in some instances, been handi-
capped by not clearly understanding the functional responsibilities and
operations of other Offices of the Agency.
6. Physical separation of the Map Division from the other produc-
ing offices of the Agency has incurred a hardship. New location of
Map Intelligence Branch and Cartography Branch in Building No. 11 will
facilitate working level liaison.
7. On-the-spot indoctrination of Map Division personnel in the
service facilities of the Office of Collection and Dissemination will
assist Map Division in the fulfillment of their functions.
8. CIA and other Government Agencies requirements for maps and
map intelligence data are currently being coordinated by the map
Division. Specific requests or materials in the form of "want-lists"
are processed directly to Department of State for transmittal to
Foreign Service Geographic Attaches under authority of the Chief, Map
Division, ORE, who serves as Special Assistant for Maps, Department
of State. Other collection channels are utilized when appropriate.
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9. The Inter-Agency Map Procurement Coordination Committee chaired
by Chief,. Procurement and Reference Branch, includess Aeronautical
Chart Service, Library of Congress, Hydrographic Office, Army Map Service,
Costal Geodetic Survey, Geological Survey and Board of Geographic Names.
This Committee meets monthly to discuss area of map procurement priority
and to resolve problems in this field.
10. A project control committee composed of the Chief, Map Division,
and the three branch chiefs meet weekly to define Division priorities.
a. Weekly priorities are broken down to section level and
in Map Intelligence Branch by individuals within the sections.
b. Project proposals are submitted to this committee in
writing by the branch chiefs*
c. The composition and continuance of this committee repre-
sents an extremely well devised method of project control and
effective determination of workload assignments.
11. It has been recommended by the Chief, Map Division, and con-
curred in by the Management Staff, that Map Division representation
on the Estimates Production Board together with notification of project
initiation by the Publications Division will prove advantageous in
Agency intelligence production.
12. The institution of the over-all Intelligence Production Plan
for CIA will assist the Project Control Committee, Map Division, not
only in determination of priorities to be assigned individual items
of production, but also in planning .for self-initiated production.
13. Dissemination of CIA Telephone Directory has been restricted
in Map Division to branch chiefs only. This restriction was imposed
throughout ORE by former DAD/ORE to reduce the possibility of security
violations but has in effect created individual card files maintained
by most of the Division personnel. This method is not only time
consuming and as large a security potential but defeats the purpose
for which the Directory was compiled.
a. The present DAD/ORE concurs with the Management Staff
in the relaxation of this ORE restriction.
25X1A9A 14. Inclusion of on the bus schedule on
an hourly basis was suggested by Chiefs of Map Intelligence and
Cartography Branches as means of assistance to their personnel hav-
ing official business to transact with the Procurement and Reference
Branch.
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15. Map Intelligence Branch
a. The Map Intelligence Branch is composed of the Office
of the Chief and six sectionst Western Europe, Southeastern
Europe, Near EastAfrica, USSR, Far East, Latin America and
Territorial Studies.
b. Approximately 70 per cent of the production capabilities
of the :yap Intelligence Branch are currently devoted to the dap
and Chart Appraisal, Chapter IX, National Intelligence Surveys
Exhibit "B"; 30 per cent (10 per cent CIA, 20 per cent LAC and
other) to the preparation of geographic studies, map research
bulletins, studies of territorial claims and boundaries, reports
on foreign mapping activities and other geographic intelligence.
c. The Branch has certain categories of geographic and
locational data of primary interest and responsibility.
Discussions with the Office of Scientific Intelligence indicate
that OSI wishes the Branch to increase its responsibilities
for intelligence in the geophysical field.
(1) This matter will be the subject of a conference
with interested parties in the near future. It appears
extremely doubtful in view of current substantive intdlli-
gence production workload that the Map Intelligence Branch
is in a position to accept the additional responsibilities
desired by OSI. Action taken by this conference will be
transmitted via separate memorandum to AD/ORE as requested.
d. Minor operational difficulties concerning, availability
of reference documents, inter-Library loan, procurement have
been discussed with Chief, CIA, Library, and have either been
resolved or in process of solution.
e. Intelligence requirements for OCD readers have been
prepared and intelligence data has been transmitted through
proper channels to Map Intelligence Branch.
(1) Lack of sufficient copies of reports or attach-
ments thereto, wherein there is a multiplicity of interest,
often reach the Map Intelligence Branch after such materials
could be utilized within a current project.
(2) Chief, Liaison Division, OCD, is currently under-
taking problem of ensuring CIA receipt of at least one copy
of attachments to IAC Agencies reports.
(a) Department of State has agreed to disseminate
on loan to CIA all attachments to reports containing
map data received by Intelligence Acquisition Division.
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I . The ianarenient Stan' reco;xnends discontinuance of ditto
forms for project controls, in accordance with Administrative
Instruction No. II and combining project control and finished
production cards into single form as agreed during survey.
g. The balance of files and records are being held to a
minimum consistent with operational needs and utilization is
made of materials in official CIA repositories.
h. Need for short term retention of certain specific
items flowing through the Map Intelligence Branch on a loan,
dead-line basis indicates the need for a rapid, branch controlled
method of reproduction.
(1) The management Staff recommends that one Thermo-
Fax Machine be procured for joint use by Map Intelligence
Branch and Cartography Branch.
i. It is recommended by the Chief, Map Intelligence Branch,
and concurred in by the Management Staff that three (3) editorial
.positions currently assigned to the Office of the Chief be removed
and established as the Editorial and Review Sectiont
Chief 1 GS-13
Editor 2 GS-12
Total 9
No changes in over-all T/0 or grade allocations are
necessary in this internal reassignment.
16. Cartography Branch
a. The Cartography Branch is composed of the Office of the
Chief, three Compilation Sections, and a Construction Section.
b. Approximately 70 per cent of the production capabilities
of the Cartography Branch are currently devoted to the prepara-
tion of standard base maps for chapter contributors to National
Intelligence Surveys (see Exhibit "C" ); final NIS Maps for
chapters coordinated by CIA and State Department; and coordinat-
ing, checking, arranging for color-proofing, and preparation
of printing specifications for NIS multi-color map publications.
Additional workload consuming the balance (30 per cent) of
available time includes the preparation of maps for CIA reports
(A' R, SR, ORE) and special requests for the Department of State
and other IAC.
c. Close coordination is maintained between the Cartography
Branch and National Intelligence Surveys Division (D/NIS), ORE,
for the drafting of schedules and adherence to production programs
of the NIS projects.
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d. Adequate control systems are currently in effect to assure
full iowledge of the many and varied steps of map production.
Elimination of one copy of the cover sheet (Form 70-40) attached
to work jacket is recommended as discussed during the survey.
e. State Department contributions to Economic and Social
Chapters of the NIS program for which Cartography Branch assumes
all color map production responsibilities, have caused consider-
able difficulty because of requested changes in compilation
during final construction stages.
(1) Permanent transfer of one person from the Branch
to State Department for NIS activity should alleviate this
condition.
f. Permanent transfer of one person to D/NIS has assisted
Cartography Branch in the fulfillment of its responsibilities
in the over-all NIS program.
g. The training program currently in effect for new
employees of the Branch afford such individuals an opportunity
to familiarize themselves with the methods and techniques of
Branch operations to ensure maximum productivity when assigned
to current workload.
h. Internal promotional possibilities and criteria for
same discussed during survey with Chief, Cartography Branch, and
Chief, Personnel Division, Administrative Staff, will be in-
cluded within over-all "Agency Career Management Program".
i. Relocation of Cartography and Map Intelligence Branches
will permit closed liaison between ORE requesters, research
personnel of Map Intelligence Branch, and the compilation person-
nel of Cartography in the production of maps and map intelligence.
17. Procurement and Reference Branch
a. The Procurement and Reference Branch is composed of
the Office of the Chief and three sections: Procurement, Process-
ing, and Reference.
Procurement Section
(1) The Section has as one of its basic responsibilities
the coordination of foreign map procurement requirements
of federal agencies participating in the Inter-Agency Map
Procurement Coordinating Committee.
(2) Continual operational contact is maintained, through
the Department of State, with Foreign Service Geographic
Attaches in the field. These attaches are given professional
direction by the Chief, Map Division, in his capacity as
the Department's Special Assistant for Maps.
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(3) The Geographic Attaches negotiate with foreign
official agencies and private institutions in order to obtain
materials on a gift, loan or exchange basis.
(4) Requirements are coordinated with CIA and the IAC
Agencies by the Map Division for specific items to satisfy
intelligence production or by "want-lists" prepared and
disseminated to field officers for collection guidance.
25X1 C4A
25X1 C4A
0
(8) Current plans for domestic procurement discussed
before Committee on 23 February 1950 allow for exploitation
of foreign agency publications disseminated directly to
organizations within the United States. Procurement of such
materials will be accomplished by this Section, exploiting
the Washington area as the first phase of this plan.
(9) The operations and methods of control utilized
by the Section in the maintenance of exchanges, etc., has
proved effective and the personnel function as an operating
staff to the Department's Special Assistant for Maps in
processing exchange _naterials.
(10) Certain specific operational problems disclosed
during the survey have been solved or are in process of
solutions
(a) Problem
00/3 classified reports with map or map
intelligence attachments, disseminated to Procurement
Section, require that attachments remain classified,
even though unclassified duplicates collected through
overt channels exist in the collection.
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Discussion between the Management Staff
and Deputy Chief, Contact Division, 00, has resulted
in agreement that OO/B reports having map attachments
may be declassified and retain OO/B reference number
when similar materials to attachments have been pro-
cured through overt channels and bear no classification.
(b) Problem
Approximately 50 per cent of all reports in
the intelligence flow referring to map attachments are
disseminated to the Section without copies of attach-
ments referenced in the covering report. Many of the
attachments to IAC Agency reports are received in one
copy and disseminated prior to submittal of cover re-
port to CIA.
Liaison Division, OCD, has received State
Department concurrence that reports containing map
attachments and related material received in the
Intelligence Acquisition Division will be routed
through Map Division on loan prior to its dissemi-
nation to proper agency.
(c) Problem
Lack of working level liaison with FDD
has caused translation service on map names and
legends to follow formal pattern of request through
OCD channels to FDD.
Management Staff discussion with Assistant
Director for Operations has resolved this problem by
authorizing direct contact between Procurement and
Reference Branch and FDD personnel and the assignment
of single T-number to cover such requests on a continu-
ing basis.
(d) Problem
4ap and map attachments to Office of Special
Operations DB reports, referenced by memorandum from
AD/OSO to AD/ORE, were being submitted directly to
the Depart Rent of the Army for retention or loan to
interested agencies. ORE was requested by AD/090 to
evaluate this material and to indicate if similar
materials were being received by other channels. One
component of CIA was therefore requesting determina-
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but causing them to resort to additional work in re-
questing this material from a third party.
Solution
AD/ORE discussed this problem with AD/OSO.
Procedures for handling the group of SO-DB Reports
mentioned above have been clarified. Efforts will
be made to have future material of this nature
disseminated to Map Division for evaluation and
retention.
(e) Problem
Inter-Library materials requested by Procure-
ment Section have in many instances been borrowed on a
short term loan basis. Reproduction Branch, Services
Division, had no method of separation of this material
from the balance of that requested by Procurement
Section. This resulted in over-due documents of the
lending agencies and subsequent embarrassment when
these materials were recalled.
Solution
Management Staff discussion with Chief,
Reproduction Branch, Services Division, resolved this
problem by having Procurement Section indicate on
reproduction requisition "Inter-Library Loan" and
these materials will be given first priority by
Reproduction.
(f) Problem
The reproduction workload resulting from
requirements for copies of maps attached to or in-
cluded in reports has been increasing; during the last
six months, much of this material is reproducible by
"Thermo-Fax".
Solution
Recommended by the Management Staff and
concurred in by the Chief, Procurement and Reference
Branch, that one "Thermo-Fax" be procured for use by
the Branch to ease the reproduction workload.
c. Reference Section
(1) The Reference Section furnishes map reference
services to CIA, IAC Agencies and other agencies of the
Government.
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(2) Full utilization is made of the catalog card files
by this Section in the determination of materials best suited
to fulfill specific requests.
(3) Requester requirements vary greatly and in many
instances reference personnel recommend and determine best
available materials in accordance with need.
(4) Foreign Service Personnel, State Department,
enroute overseas, are supplied with basic maps in accordance
with their position and the area to which assigned.
(5) Requests from individuals must be adjudicated in
light of requester need and classification of pertinent
material, questions arising with regard to advisability
of dissemination are resolved by Chief, Procurement and
Reference Branch.
(6) Nearly all Department of State map reference
materials (reference atlases, gazetteers, postal guides,
pilots map supplements, map catalogs, foreign language
dictionaries, etc.) formerly loaned on an indefinite basis
to CIA have been officially transferred to this Agency.
d. Processing Section
(1) The Processing Section has the basic responsibility
for integration, by regional geographic areas, of materials
into the map holdings and the distribution of materials as
needed or requested.
(2) The present catalog procedure has been operating
for considerable time, and. while considered adequate dur-
ing the early stages of this operation does not meet with
the present workload requirements.
A comparison of the present and recommended
procedures is attached as Exhibit "E". The simplification,
economy and conservation of time plus the ability of putt-
ing catalog card dissemination on a current basis will
assist this Section in the reduction of current backlog
of uncataloged materials. Revised list for the dissemina-
tion of map catalog cards is attached as Exhibit "F".
The recommended procedure has been discussed
between the Management Staff and the Chief, Procurement
and Reference Branch, and agreed as a logical and workable
procedure.
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(3) The Management Staff recommends and the.,Chief,
Procurement and Reference Branch, concurs in the transfer
of the Circulation Librarian, GS-5, from the Office of
the Chief to the Processing Section.
(4) Certain simplifications and eliminations of files
and file procedures recommended during the course of the
survey have been implemented in this Section.
(5) The problem of inclusion of specific map holdings
within the Central Intelligence Agency Disaster Plan was
discussed with D&D/OCD, Chairman of this committee.
Facilities will be afforded for a limited number of currently
maintained maps and map materials located outside the
Washington area.
(6) The Processing Section is responsible for the
preparation of a weekly coordinated "Acquisitions List
for Maps of Foreign Areas", present distribution of 175
copies has been revised as attached in Exhibit "G".
25X1A9A
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