ANNUAL REPORT OF THE NIS PROGRAM FISCAL YEAR 1950

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP57-00042A000100180015-4
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 10
• Document Creation Date: November 17, 2016
• Document Release Date: April 13, 1998
• Sequence Number: 15
• Publication Date: January 1, 1950
• Content Type: PERRPT

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ANNUAL REPORT OF TIE NIB PROGRAM
Piscal Year 195
MM
1. This report covers the second year of operations of the NIB
Program. It consists of the "M8f REPORT", covering the significant
developments during the year, and three Annexes: "I - PRODUCTION
REPORT", ^II - EDITORIAL REPORT", and "III- PUBLICATION REPORT",
Reference should be made to the "Annual. Report for Fiscal Year 19498
for the background and significant aspects of the NIS Program which
Will not be dealt with so extensively in the present report.
2. Considerably more progress was attained in the production
of NIS during P'Y 1950 than that realized during PT 1949. There were
398 NIB sections sent to CIA by contributors during this fiscal year
which represent the equivalent of 6& NIS. These sections were on 40
individual HIS Areas, with the largest block, 34 sections, relating
to the USSR. During this fiscal year there were 287 sections reviewed
and cleared for publication by CIA, and 216 sections printed and
disseminated. In addition to the contributions transmitted to CIA,
tie Intelligence Agencies now have 445 NIB sections in various stages
of preparation which represent the equivalent of about 8-NIS. The
percentage of NIS contributions, by agencies, received by CIA during
the year, was as follows: State 27%, ArtV 43%, Navy 10%, Air Force
9%, CIA 11%. While this year's production effort is aommendahle, and
roughly doubled that attained last year, it still falls short of
current production requirements by apprcactmately the equivalent of
1* complete NIS.
3. The main defect in NIB contributions received during this
year was not a quantitative deficiency, however, but a qualitative
deficiency. This resulted in much wasted effort on the part of all
processing and reviewing components and continues to be tie largest
singly f"ter in holding bank productim. Use than 35% of all
saNWAbutjses reviewed by the NIS Division (CIA) during FY 1990 were
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adequate, with reasonable editing, to meet the present minimum NIS
requirements. More than of all contributions required ertenaive
review and coordination with contributors. The remainder, about 25,E
of all contribution, required major ie'worktng by the contributors
before they could meet minim m requirements. This distribution
pattern is generally applicable to contributions from each of the
four IntelHgenee Agencies - State, Ads Navy, and Air Force, The
nature of the defects, however, varied somewhat with the subject
matter and with the individual agencies,
4. The principal reasons for the qualitative deficiencies in
the NIS contributions are attributable to the following: a) unrealistic
production schedules which over-extended agency capabilities to the
point where quality was sacrificed to quantity; b) inadequate review
and coordination at the working and control levels in the Intelligence
Agencies; c) inexperience and incompetence of many working level
analysts. The first of these factors, a) above, has been dealt with
by reducing the production effort from the equivalent of 15 complete
NIS per year to the approximate equivalent of 8 NIS per year. In
respect to the second factor, b) above, the NIS Coordinator has
emphasized throughout the past year the need for more adequate review
and coordination of NIS contributions by the Intelligence Agencies,
and steps have already been taken by each agency to improve the
situation. It is still too early to determine the adequacy of this
corrective action. The third factor, c) above, is not amenable. to
i-mediate improvement. In some cases contributors are saddled with
personnel who are not competent analysts, but the inertia of civil
service procedure makes it difficult to transfer or discharge such
individuals. The Intelligence Agencies are fully aware of this matter
and no doubt will find ways and means to improve personnel qualifica-
tions gradually over the years. The quality of NIS contributions,
however, will suffer so long as there are incompetent analysts
producing them.
5. The over-all delays between completion of first drafts of
NIS contributions and their final publication are still excessive.
In addition to the aforementioned deficiencies in quality of contri-
butions, which require a disproportionate amount of time in reviews
coordination, and reworking, the principal factors contributing to
delays in NIS production are: a) delays in coordination and review
of subcontributions by the section and chapter coordinators within
the Intelligence Agencies; b) submission to CIA of incomplete
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contributions (i.e., text'ithout accompanying maps and graphics) kk
the Intelligence Agencies;'c) bottlenecks in the printing process
within the GPO special unit, particularly with regard to collation
and binding; and d) small but cumulative delays within the NIS Division
itself, which are gradually being reduced as " `P/O is brought up
to strength and a more balanced production flow is attained. In
respect to a) ai;ove, the problem is mainly one of balancing production
by the various -subcontributors to ensure a reae,onable fulfillment of
working level schedules, and the assigning of edhquate full time
personnel to the reviewing and coordinating functions within each
Intelligence Agency. The situation respecting b) above, is gradually
improving and should not be too serious in the future. The bottlercks
- in the GPO special unit, c) above, are due mainly to lack of space
for efficient production layout and probably cannot be corrected until
more space can be made available. The delays in printing, however,
are serious and require corrective action before the over-all period
between the preparation of contributions and their final printing can
be acceptably shortened.
6. The production schedule _forr liminary NIS Gazet_tmrs was
fully met for P7 1950. The U.S. Board on Geographic Names (BGN)
processed 150,950 geographic namea, which comprised 22 Preliminary
Gazetteers. In addition, BGN edited the geographic names on 20 VIS
base maps and 358 NIS sections. The standardization of geographic
names has been of inestimable value to tho Intelligence Agencies in
the production of NIS. The Preliminary,Gazetteezs have been used
solely by the producers of the NIS up to the present; but it is
intended to extend their use, as security permits,, to other depart nts
of the government, using reserve stock for this purpose. Eventually,
it is intended to,release all geographic names produced under the NIS
Program so that the. BGN may make them available to the public under
direct appropriations from the Congress for that purpose. For security
reasons,this release must wait until such a sufficient time interval
has elapsed that these geographic names will no longer be associated
with the NIS production schedule.
7. The NIS base bap schedule has generally been not for this
year. The Map Division (CIA) has produced 28 NIS base maps, 22 NIS
page-size maps, and 40 NIS section cover maps. In addition, the Map
Division completed 112 final NIS base maps and 240 color proofs of
NIS maps. Moreover, the Map Division contributed to and served as
chapter coordinator of NIS Chapter IX, "Map and Chart Appraisal".
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Eight Chapters IX (45 saations) were completed during the year.
While this represents only 70% of the production requirements
originally set for FY 1950, it fully meets the revised production
requirements. It is noteworthy that none of the Chapter IX contri-
butions of the Map Division required major re-working or revision,
Like the Preliminary NIS Gazetteers, the NIS base maps have served
their purpose admirably, not only in. terms of efficient centralitation
of mapping services whereby all NIS contributors are supplied with
necessary base maps, but also in the general cartographic excellence
of the finished maps which are produced by Map Division,
8. The NIS Committee held 40 meetings during FY 1950. The
efficacy and fundamental soundness of the NIS Committee type of
organization for directing the NIS Program was well proved during
the past year's operations. The "two-hat" system used in the NIS
Committee, whereby the representatives of the Intelligence Agenc
also directed the implementation of the NIS Program within their
respective agencies, is growing increasingly effective in strengthening
the control and coordination of the program. There was continued in
committee actions the principle of unanimity, which has characterized
Its proceedings from the inception of the NIS Program, and which has
done much to cement inter-agency relations and to make the NIS Program
a joint effort in fact. The excellence of representation from the
Intelligence Agencies, and the gratifying spirit of understanding
and cooperation which prevailed within the Committee, greatly assisted
the Chairman in the carrying out of his responsibilities. There are
also increasing indications that the members of the NIS Committee are
being accorded more support by their agencies in implementing the NI
Program within their agencies. This does not necessarily mean that
such support is sufficient. The greatest weakness still lies in the
coordinating and reviewing functions of chapter and section coordinators
within the Agencies, As mentioned elsewhere in this report, the
failure of these levels results in material being received in CIA
which never should have been cleared by the agencies responsible for
its initial review and coordination.
9.. During the year, the NIS Committee took a number of steps
leading to over-all improvement in policies, requirements, and procedures
relating to the NIS Program:
a. Revision of 08tandard Instructions" - During the fall
of 1945 the NIS Committee appointed inter -,agency subcommittees
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to review and revise all NIS chapter and supplement
outline guides based on the experience gained since
the original ones were formulated. All outline guides
have been so revised, with the exception of that for
Chapter VII (Scientific). The latter has been delayed
because of the organization of a Scientific Intelligence
Committee of ubich the Assistant Director, Office of
Scientific Intelligence (CIA), is chairman, and the
concomitant requirement that he serve as the chairman
of NIS Chapter VII Committee.
b. Chapter VII Production - Rather then producing
"across the board" Surveys on Chapter VII (Scientific),,
the NIS Committee decided to restrict production to
those countries which have actual and significant
scientific potential. Moreover, the Committee took the
view that the production of Chapters VII should not be
geared to the same rate as other NIS chapters, but
should reflect the peculiar difficulties of this field
of intelligence and the limited capabilities of the
contributors. With the active participation of OSI/CIA
in the coordinating and contributi; aspects of Chapter
VII production beginning with FY 1951, it is felt that
the contributions to Chapter VII will be strengthened
and improvedo
e. Revision of NIS Priorities and Production - When
it became apparent that the NIS production requirements
of 15 NIS per year more beyond the eapabilitise of the
Intelligence Agencies, the Joint Chiefs of Staff were
requested to review their requirements and priorities.
The reply from the JCS, dated 20 March 1950, advised the
Director of Central Intelligence that the JCS eoncurr*d in
reduced production from the equivalent of 15 NIS to the
equivalent of 8 !IS a year. Submitted with the JCS reply
was a revised list of priorities to guide NIS production.
In consequence, the NIS Production Schedule for the last
quarter of FY 1950 was revised to fleet these new requirements.
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d. Petroleum Intelligence ? At the beginning of
7'Y 1950 the NIS Committee recommended to the Director <
of Central Intelligence that the allocation of production
responsibility for petroleum intelligence (Section 620)
be changed from the Bureau of Minas, Department of the
Interior, to the Munitions Board Petroleum Committee,
which had recently been constituted by the Secretary of
Defense to provide petroleum intelligence for the Joint
Chiefs of Staff and other Armed Forces Agencies. The NIS
Committee also recommended the addition of NIS Supple..
meat V (Petroleum) to fulfill additional requirements of
the Government for petroleum intelligence. These
recommendations were approved by the IAC and the productio:
responsibility was accepted by the Executive Secretary,
Munitions Board Petroleum Committee, to take effect
beginning with FY 1951.
e. Special NIS - Problems arising out of new require.
meats by Navy respecting intelligence on Marine Climate
and oceanography led to a decision by the NIS Committee
to produce this intelligence in five special NIS covering
the ocean areas of the world. The allocation of production
responsibility was assigned to Navy with assistance by the
Air Force on marine climate sections.
10. The NIS Coordinator has been greatly aided in keeping his
"finger on the pulse" of the complex production situation inherent
in the NIS Program through a system of production reporting which
has been developed during the year. It extends from the initial
phases of contributions all the try through the processing; review
and publication phases. Departing from the previous methods of agency
reporting by percentages of completion, which relied upon personal
estimates and other variables, there was devised a system of "phase
reporting" by agencies. There are five production phases involved,
the first three of which indicate 1/3, 2/3, and-completion of first
drafts of contributions at the working level. The 4th and 5th phases
indicate completion of review and coordination steps in the parent
agency. After contributions are received in CIA, there is a second
set of phase reports to indicate the progress through final printing.
In addition, contributions are assigned categories according to their
qualitative adequacy as determined by the editorial review within CIA.
From these reports the NIS Coordinator as uell as the agency
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representatives can determine the NIS production situation for each
agency as well as for the over-all situation.
11. The maintenance aspects of the NIS Program will become of
increasing concern as the publication of initial Surveys attains
significant proportions. Directly related to the maintenance program
is the collection effort needed to fill the gaps and to refine the
basic intelligence contained in the original Surveys. These latter
provide a precise guide. to field collection by indicating in the
Subsections, "Comments on Principal Sources", the extent and nature
of the source material and of the categories of intelligence needing
collection effort, Each Intelligence Agency is responsible for
initiating collection of basic intelligence in'those categories for
which it has primary production allocation under the NIS Program.
The contributing. agencies have taken steps to implement this
responsibility. As this now information flows in from the field,
the Intelligence Agencies will have to assign a commensurate amount
of their capabilities to maintaining it in their files and, then
warranted, in revising sections of the NIS already published. The
1'*IS Coordinator attaches primary Importance to the collection and
maintenance programs in view of the many gaps in basic intelligence
which have been revealed in NIS contributions reviewed to date. It
is this phase of the NIS Program, only now emerging, which can
produce basic intelligence necessary to fulfill national security
requirements,
12. In a broad view of this year's efforts, definite progress
in the NIS Program is apparent. Also apparent are major deficiencies
which by now should have been overcome. Moreover, these deficiencies
are of a fundamental nature, extending as they do down to the
intelligence analysts cho prepare the NIS contributions. Finally, it
does not appear that the Armed Forces Intelligence Agencies are
adequately supporting the NIS Program even at the present reduced
level of production. All too frecuently departmental and other
requirements take precedence over NIS work with the result that
production schedules are unbalanced and a disproportionate amount of
time and effort is required before the situation can be rectified.,
This difficulty exists because the same personnel used'for HIS work
are also used for departmental activities. While it is realized that
econonq- measures and long-established practices have necessitated
this arrangement, the fact remains that the NIS Program must proceed
in an orderly.and continuous manner if the vital basic intelligence
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requirements of this Government are to be met in a reasonable time.
The assignment of a full time staff in OIR/State solely to NIS work
is an effective solution to this problem,, and has been made possible
through financial support by CIA.
13. The following observations are based on the progress of the
NIS Program attained at the end of FY 1950. They are intended to be
reasonable and to indicate,fersible objectives based on justifiable -
support of the Intelligence Agencies and of the CIA. It is the
opinion of the NIS Coordinator: that insufficient support is being
accorded to basic intelligence collection, maintenance, and production;
that the Intelligence Agencies are still devoting too much time and
effort to other intelligence activities considering the serious gaps
and inadequacies existing in basic intelligence; and that the present
rate of production of NIIS is gecred too low to satisfy national
security requirements. So fc.r the-equivalent of comae 10 NIS have been
produced,although not all have yet been published. At the rate of
8 PTIS per year, which represents the present capabi]ities.of the
Intelligence Agencies, it will take about 7 more years to complete
and. publish initial Surveys on the JCS high priority areas. In
addition, there must be acsigned eapabi.'_ities sufficient to ensure
adequate collection and n-aintenance to revise the original Surveys.
The Ad Hoc, Committee which developed the fundamental aspects of the
?IS Program recommended that NIS on all areas of high priority should
be completed and placed on a maintenance basis by 30 June 1952. This
date was concurred in by the Joint Staff and the NSC. The present
rate of production will attain this objective some 5 years later, or
1957. Perhaps that is the best we can do under the circumstances but,
in view of the present world situation, this matter deserves serious
consideration at the policy level.
14. In closing the report of the TTIS Program for FY 1950, it is
appropriate to quote a significant para,raph of last year's report
which is still relevant and bears repeating:
"In emphasizing the defects and difficulties of the present
situation, the progress already attained should not be over--
looked. A concept, a'plan, and an organization have been
developed which are fundamentally sound and practicable, and
which provide a means for the eventual acquisition, production
and maintenance of adequate basic intelligence to net the
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awe-ire-r
requirements of this goverment. Valuable training,
experience, and understanding have been gained over the
past year. A series of x llent base maps and gazetteers
are being produced which will eventually result in world-
wide coverage in these two fields. Many of t ho defects
noted herein have been due to unfamiliarity with this type
of production. Increased efficiency of producing components
will inevitably result from more experience and under-
standing of requirements. Moreover, the improvements made
in the field of basic intelligence will be felt throughout
the whole intelligence framework. These.factors give
balance and perspective to other considerations and should
result in a more complete understanding of the NIS Program
and to the part it can play in the general intelligence
plan.w
15. In view of the foregoing, we conclude that:
a. The IBIS Program provides a comprehensive and logical
means for developing the basic intelligence required by
this government.
b. The over-all organization which has been set up to
implement this program is adequate. There is pressing need
within the Intelligence Agencies of the Armed Forces, however,
to provide full time staffs capable of fulfilling NIS
con fitments in an orderly and continuous manner.
c. The functioning of this organization is still
imperfect, mainly in coordination and review functions within
the Agencies, but definite improvement has been noted during
the past year.
d. The NIS production during FY 1950 has been deficient
in quantity and seriously deficient in quality.
s. The disparity between production requirements and
agency capabilities has been adjusted by reducing production
requirements from 15 NIS to 8' PIS per year.
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t. The serious deficiencies in quality of NIS contri-
butions are due mainly to inexperience and incompetence of
working level analysts, and to ineffectual coordination and
review by chapter and section coordinators.
go The allocation of production respond sties is
generally sound. Some changes in allocation have been made
during the year, and others may be necessary as the program
develops.
h. The Outline Guide has been found inadequate and has
been completely revised during the current year, except for
Chapter VII which is to be revised shortly. Principal
additions to the Outline Guide Include Supplement V (Petroleuuma)
and 5 Special WS on "Marir Climate and Oceanograpb y0.
I. increasing effort will be needed in field collection.
to fill. the me gaps existing in basic intelligence so far
produced, in turn, this will necessitate au?mentation of
agency capabilities for the proper maintenance of published
WIS.
J. Lack of space for the special delays in printing which will boom* icrreaunit, In Is y causing
serious
as fall production of DIS is attained.
k. The base map and gazetteer programs have been fully
satisfactory during the year.
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