DECLASSIFICATION OF SOME OF YOUR MURPHY COMMISSION TESTIMONY

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80M01133A001000060015-6
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 22
• Document Creation Date: December 14, 2016
• Document Release Date: October 22, 2002
• Sequence Number: 15
• Publication Date: February 19, 1974
• Content Type: MF

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I~CI~`~C 7~-~t-
1~ F~~ I3T4
NID~~IORANDUM FOR: Director of Central Intelligence
SUBJECT: Declassification of Some of Your
Murphy Commission Testimony
1. SubseQuent to your appearance before the Murphy Commission,
on 19 November, the Commission staff reQuested that we review the
transcript of your remarks and differentiate for them the classified
and unclassified portions. For your information, they have taken
this same approach with mast of the witnesses who have made refer-
ence to classified information in their testimony.
2. The transcript which appears in the attached notebook has
been reviewed by the DDI, the DDO, the DDS~,T, the General Counsel,
and by me. We have underlined in red all portions which are classi-
fied, except for a few points which are now treated within the
Agency as classified but which you may r:ow wish to treat as un-
classified. The particular portions to which I draw your attention
are:.
a. On page 9, the first full paragraph beginning
with "That was a way of expressing the charge of conducting.
espionage..." Is there today a good reason to deny that
the US has a mechanism for directing the conduct of espionage?
b. On page 14, the first full paragraph on the page.
25X1A
c. On page 57, beginning in the first paragraph with
"This, of course, is why we gat into the war in Laos...." and
carrying through the middle of page 58; .then picking up again
after certain deletions on page 58 with the paragraph "When
the cease fire was arranged last January..." and carrying
to Mr. Murphy's first c{uestion on page 59. This section
describes how CIA got into the Laos war, etc. Can some or
all of this go into the open .record to begin to set matters
straight?
State Dept. review completed. Referral to NSC not required.
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c3. t3n Pale 131= ttze ~aragra-~h z~baut m.id-pale which
begins "~'It~.t har}~penec~ in 1~JS9 was- that a General in the
Ca~~a3isn ,6~rr~y. , ." thr~nx~h page- 102 as m~rk~. This is
t':z+~ story ~' why $ih,~ztouk thinks we tried to overthrcx~r
h;n in 1059, and it semis that t~~is wt~u~d be ~. ~~ story
t~ have out in the ctn.
~. Ths Cor:~3ssicm does not naw intend to bush a sanitized
tr~~nsCri.~at, although they ~~y ~~ant to ~lis~~ an unclassified
si~ry of y~aur ta~tirt~y. Thus, they wi11 need ~uf~dsnco ~rcm,~ us
abiKxt which port~.ons s~f your brie~in~ they y use, Ater 1. ro-
ce:tve yc~r ~uidsncs on these #~ c~ut~tandin~ mints, I will ru~rk
thasir copy s~f the transcript to Witch yours,
4. far your in#~arr~ticu~, the ~om~ission 3s d~telc+pinq $
~o;ll-u~, study }plan which the staff m~rhers will pursue. 1 knt~r
tht~t ane area tm which they would like a olea~rer fix is inert
action.
5. I rec,cx~end that you sign the attached lett?r tv
A~,'bassrrd~+r ;~1t~r, tr~itting the sanitized text, Y wixl
ca~rry- it to the G~ssi~ when I ~o to mark their transcript.
25X1A
a~~tzcec~
Afi.tar~~nt
as Slated
Dc~xlrc/cs. 19 Feb 74
Distribution:
t}ri~. -addressee
3. - DDCI.
1 ER
1 - CS chr?no
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An Open Invitation for Chan~c
>~ s wF trove pointed out an other occasions, a new
Commission has been established by Congress "which
will submit findings and reconlnlendatiolls to provide
a more effective system for the formulation and
irnl>}ementation of the Nation's foreign policy." The
three foreign Affairs Agencics.thenlselves have been
studied almost unceasingly. The l]enter Commission,
the VVristor] Commission, AI~SA's "Toward a A4odern
Diplomacy," tl?]e Department's "Diplclmacy for the
70s," and innurnerabic academic studies have sougJlt
to determine what is wrong ea~ith the three Foreign
Affairs Agencies, and what should be done about it.
Unlike rill of these earlier studies, the new Commis-
sion, with the unwieldy title. of "Cornnlissiorl on the
Organiz~tian of the Gavernment for the Conduct of
Foreign Policy," has a far broader mandate t}ran just
Foreign Affairs Agencies. "!'he Commission is cnl-
powered to "shady and investigate the organizatian,-
methods of operation and powers of the departrnents,
agencies, independent establishments and instrumen-
talities of the United States Government participating
in the formulation and implementation of United Stales
foreign policy."
The Commission, generall}~ referred to as the
"Murphy . Corllmission" in honor of its Chairman,
Ambassador dtohert tilurphy, ~=iii not sirrlpl; confine
itself to the three Agencies or even the Executive
I3ranc.h. While it wilt ;nvestigate such questions as the
role of the intelligi~nce community, the Defense Depart-
ment, the NSC staff, and the domestic agencies, the
Commission will be the first to investif~ate the rote of
Congress and Congressionat-Executive Branch interac-
tion. Equally important, the Commission will look at
the broad challenges facing Americ-an diplomacy ,in the
coming decades, and the implications for the future con-
duct of foreigu policy, and witl even look into the policy
pracess itself, In short, this is the first commission
given sufficient power, a sufficiently broad mandate,
and an intellectually penetrating and challenging
approach. to make :a .full scale investigation of the prob-
lems o# formulating and implementing foreign policy.
The Commissioners and the Commission staff have
made clear that they are interested in obtaining the
views of AFSA ass the professional organization of
Foreign Service personnel. VVe believe the Association
is in a unique position to assist the Commission, and
we Have already been in touch with -the Commission
staff and wilk cpntinue to be in the course of this year.
T}]e Association] ~Nill formally testify before the Com-
mission same time this year. Already, the AFSA Conl-
mittee on Professionalism, headed by Brandon Grove,
Jr., has begun to prepare AFSA's testimony. At the
same time, an AFS.-~ group in AiD, headed by 1Valter
Furst, is looking into the specific question of the future
of bilateral assistance and its rose in American foreign
policy, and of tll~; futrirc of :llD. The USIA Advisory
Committee has similarly established a group, the USIA
Professional Interests Committee chaired by AI
2 FOREIGN SERVICE )OURNAL./G/IGQfy, /974
Perlman, a form?+' A1'SA Board nlcmbcr, to make a
careful study of ihc. role of information and culture in
foreign pok]c.y aru the future of USIA, andto prepare
r'eGa111l1lendationS far AFSA's and the Commission's
consideration.
We already have some idea of the. basic {fines of what
we will discuss evith the Commission. We intend to give
the Conlrrlissian our best thinking-hopefully as good
as Duly v;-~ork done outside the ~Scrvice to date-on the
kinds of problems which will face American diplomacy
in t11e next 20 years, and the kind of organization of
the government necessary to carry out it-rose tasks. We
intend to invc;stigatc and d1SGUS5 the nature of the policy
formulation and paticy inlplcmentation process, and the
steps ee~hich can he taken to improve that pracess. \'t'e
nlay discuss the role of Congress and Congressional?
Executive relations, 1,'e will naturally discuss bureau-
cratic and organizational problems (such as the exces-
sively Iarochial and client-ariclltcci approaches of some
agencies, or the unnecessary prolifcratioll of nan-
I~oreitn Service personnel overseas, etc.), but we do
not bcheve eve should concentrate mucl] of our efforts
on internal organizational changes in the three Foreign
Affairs Agencies, as that alas been alrcadyaver-studied.
Ancl. r,vith the possible exception of ill `~, we certainly
da -not intend to place any emphasis on the deed for
changes in altowanecs or personrlcl polici:s-we. are
changing those now through the negotiations with the
three fl~~encies. In short, we intend to take a broad
loot: at the kinds of concerns facing the- Cam:nission,
and not-just camnlent an matters of parochial interest..
No final decision has been made ors any of these
points, and we have anky now begun t>> work on the
details of our sug;estions. One real probem facing the
Association will be our recommendations on the future
relationships among the three Foreign Affairs
Agc:ncles. Should All? Auld USIA reran. their ,~rescnt
status as separate agencies with a substantial degree`
of autonomy? Should they instead renlai:l as separate
agencies, but be brought far closer under the overall
guidance of the Secretary? Or is this the right time for
the three Agencies to be amalgamated t.c:;~ether and,
if so, brow? N~hat AFSA says on this issl;e may be of
critical importance to the future of the Foreign Affairs
Agencies.
The existence of this Commission has presented
foreign affairs professionals with a unique opportunity
to help shape our own destiny. What is needed -now
is a massive creative effort on our part to provide the
Commission with our hest collective ttlir.king on all
aspects of its mandate. 1'4'e strongly encourage you to
take a few moments and give some ttrou~;ht to the
general problems facing the United States Gavernment
in foreign affairs, hoee~ we go about farlnulating and
implementing foreign policy, flow the government (not
just t}]c Executive Branch) should be organized to carry
aui."phis function, and submit to us yotar analysis, iden-
iiCication of problems, or recommendations concerning
any aspect of the C;ommission's activities. if we as pro-
fessionals rive this subject the urgent attention it
deserves, we are confident it will have a profound.
impact in coming years.
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F C'Ft "I`!-9C COiidC~l~C`>" ?`~F F CJRt 9Gf~t ~'OL.lCY
2025 tai S"I"R~ET, N.Y~.
WASHINGi~OP~o f~.C, 20506
THL COMMTSSTON? S STUVTPS P12OGRIiT~i
r1'he document attached describes the Study Program
au~.tharizet~ by the Commission on March 25, 1974.
That Pragram should evolve as the Commissian?s
deliberations and the research itself suggest new
issues ar revised priorities. Pending such revisions,
however, the studies to be underta}~en by the Commission
are those autlined hire.
Pete L. Szanton~
Research Director
March 26', 1974
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~M S5~Z~.N 0~! TF~FM OtiGAI~!!~~'t"ION OF= THE GOVERNMEPtT
f-"OIL ~ F-I` t:~ilVUUCT GF F(1ilEIGt~ I~OLlCY
2025 M 5'( RT_El , N.1Y.
WASNING'TON, D.C. 2050G
l~i~~.r'C11 26 y 1~7~4
TiiE COMMISSION ` S STUDIES P12OGRAM
The purpose of the Conul~ission on the Organization of
the Gaverrunent far the Conduct of Foreign Policy, as set
fort:.li in its. authorizing legislation, is "to submit findings
and recomrnendation.s to provide a more effective system for
the formulation and implementation of the nation's foreign
policy." The statute makes plain that those recommendations
should apply not only to the full range of Executive Branch
agencies concerned with foreign affairs, but to means of
improving the ability of the Congress to carry out its own
responsibilities in foreign affairs.
The Comrnissian is responding to that mandate in several
ways. It is taking testimony from current and former
execi.xtives of agencies concerned with foreign policy, and
from critics and observers of those agencies. It has undei:-
taken a systematic canvassing of the attitudes and desires
of members of Congress and will pursue these in future
hearings. It may sponsor a number of conferences and seminars.
Finally, it is commissioning a number of special studies.
mhis paper_ C~11t1,J_J"1.P~ the Grono, content and timing of those
studies.
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Sever. a1 introd~ictory conuncnts may be useful .
First, the pux"~aose of aJ_1 of the Conunission's activi-
ties i_s to make clear how fore~.gn policyma}:ing might be
improved through changes in organization; it is not to examine
the substance of policy. Accordingly, the purpose of the
research program is to provide the Commission with a factual
basis for determining whore current organizational perfor-
manc'e ~-- especially within the Executive Branch -- is-most
in need of improvement; what kinds of organization change
seem, a_iltie7_y to prove most beneficial; and how such changes
migl~it effectively be introduced.
Second, in this document as in the Commission's work
generally, the wards "organization," "foreign," and
"policy" are all used broadly. "Organization" refers to
the ~ar_ocedures, personnel and resources applied to the
determination and management of pal_i.cy, as well as to relative
responsibilities of the various governmental entities
invo,Lved. "foreign" policy is understood to involve the
whol~u range of issues which may substantially affect the
relation of the U.S. 'to other countries, whether t,~ey also
have major domestic implications or not. And "policy" is
takers to mean that range of f_unctians which includes analysis
of the external world, and of U.S. interests with respect to
it; er of foreign governments. Attent:ian will be directed
onl~~ to apparently successful arrangements which seem
appl.i~:~~~b].e to U. S , conditions. Examples are the British
per~,onizel and commercl_al functions reformed as a r_esu].t
of t.h~, Plawden and Duncan reports, the recently rear.ganize~~
Foreign Offa_ce of the I'edcral Republic. of Gcrrna.ny, and
the I~'.r_ench administration of ave.rseas cultural and economic
assist.anc:e programs.
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Pk3ASE II: SUI3STANTI~IL S'.CUDII,S
Phase II, embodying the major por~L-ion of the Carnmis--
si.on.'s research, will. begin in April 1974 and lie subs~L-a.n-
Bally completed by December ]_974. Soma Phase II studies
will be performed by the Commission's staff, otYzers by
consulting scholars. The studies are outlined tentatively
here; full specification of tl~ei.r coverage, appiaach and
level of detail awaits completion of discussions with their
prospective authors.
A. The T~ffectivenessY of Organizational Ch.anc~e
Th.c:re exists no formula which accurately p~~edicts
the .full effects of changes in complex organizations.
One :reason why the pr_oY?~~sa1s ifarmations of the foreign aid program, 1949--1962;
changes in the State Department associated with Under
Secretary Crockett; creation of the CIEP. To each of these
cases, three main questions would be posed:
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. What benefits ware anticipated from these changes?
. Vdhat l~eriefits -- and what costs -- were actually
experienced?
. What general lessons for organizat7..ana1 change
can be c~.erivcd?
F3. The 1~dequacy of Current Qrganization
The Cammissian. must abv:i.ausly attempt to assess the
adequacy of current argana.zational arrangements far. the
conduct of fa~:eign policy. It cannot canduct researcl~i on
all such organi~ationa7_ arrangements, however. To supple-
ment other evidence concerning the manner and ef_fectivencss
with which the government manages the wide va.r_iety of
foreign palicy pro}al_ems, the resea.r.ch program enpects to
examine in detail the adequa.ry of current organizationa.7_
arrangement with respect to four or five foreign policy
problems of the highest priority. The purpose of each
such study is to determine whether current organiza-
tional forms, jurisdictional lines, staffing patterns and
operating procedures are fully effective, and to suggest
whether specific alternative arrangements (drawing especially
tan the models outlined in paper I.F') might improve matters.
The studies in each such area will pi?oceed by examining,
asa nearly as possil-~le, all maja.r_ decisions made by the t1. S.
Gove.rrunent of a particular kind over roughly the past
five years. This procedure will present for review a
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his-t:ory of poli.cymaking which will 1.nclude c-~ses of crisea
as well as routine decisionma}~j_ng, issues resolved a~t
dcpa.rtmenta]_ as we1.l as Presidential levels, and successes
as ~,re11 as failures. The deci.sians which, in retrospect,
had unfortunate or unexpected results wi11 be compared
with. those whose consequences were mare .f_avorable ai: more
clearly foreseen. `T'hese compara_sons will seelc to 1.11umin.G.te
the causes of inadequate performance ar_d to i.dcntify bo-t:.Y:~.
the organizations and the functions (co11_ection of" informer--
ti.an, devel.apment of alternative courses, etc.) which
appeared mast iz~ need of strengthening.
The particular foreign policy problems tentatively
chosen fox. such intensive reviews ar.e the following:
1. r.['Y~e zn'ceractian of U . S . and Foreign Economies . In
addition to sL~ch issues as the U.S. textile dispute
with Japazl, 1969-74; preparation of the 1973 trade
bill; and U.S. actions respecting the problems of
the international monetary system, attention wi11
be given to decisions previously thought of as
being domestic but which have a major potential ar
actual. impact an foreign relations (e.g., U.S. crop
acreage allotment decisions and their relation to
world grain prices).
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2. National Security~Issues. 'i'bis study wi11 seek to
assess the adequacy of current arrangements far
balancing the full rancre of relevant considerations -
foreign policy ~_mpli.catians, economic and budgetary
impact as we11 as national. security requirements ---
in deC:l.SlaI1111akillg with. respect to defense budgets,
weapons acquisition, base requirements, troop deploy-
ment, strategic dr~ctrirze, anal the prepara-Lion of
positions cancerninc~ international arms limitations,
3 . Coordination in Campl,ex_ Setta_ngs . Thi s study ~,ri11_
examine the capacity of the' U.S. to maintain caord~i.-
nation between a l.are7e number. of policies impinging
on a single fareicn state, or region. It will both
survey the totality of U.S. foreign policy activity
with respect to a single region or sma11 set of
countries (e.g., the Federal Republic of Germany,
or India and Pakistan) over roughly a five year.
period, and examine in detail a case in which the
combined effect of U.S. policies had important
unintended consequences (e.g., pressure on the
Erhard regime just before its fall).
4. Multilateral and Global Issues. This study will
review recent U.S. actions with respect to the diverse
but increasingly important issues which are inherently
multilateral or global in scope. Often, they present
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both d.amestic anc7 foreign policy implications,
cross traditional jurisdictional lines, and involve
important technical components. Such issues include
the oversight of multinational carporat.ions; deter-
mination of seabed policy; and actions respc~ct.i_ng
world envir..onment, polaulation, and food production.
C~. i-1in:i_miz~:n~g Trr_ationa_lity
Recent work in sever~~l disciplines provides new in~~ig)xt
intc,~ the tendencies of personal. and :~ureaucra_tic factors
(and in the case of crises, physiologica7_ and additional
}psychic factors) t.o distort the judgement of decisionmakcrs.
Drawing on recent work in the political, behavioral and
psychological sca_cnces, this study would addr~~;;? two
questions: (1) to what extent are current organizational,
procedural and staff arrangements unnecessarily vulnerable
to ~su.ch p.r.esstires; (2) what alternative arrangements might
eitYr~.r_ shield decisionmakers from such pressures ar open
their deliberations to others less likely to be affected by
them? Answers would be sought as to arrangements both for
response to cr~_ses, and far more routine decisionmaking.
D. The Conduct of Routine Relations
The adequacy of current organizational arrangements to
mana