STRATEGIC PLAN FOR DDR&E

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP03B01495R000100330002-1
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 15
• Document Creation Date: December 23, 2016
• Document Release Date: April 29, 2013
• Sequence Number: 2
• Publication Date: November 27, 1987
• Content Type: MEMO

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MEMORANDUM
SUBJECT: Strategic Plan for DDR&E
DCl/ICS 7185-87
27 November 1987
1. In response to a request in late September by the Deputy Director of
Central Intelligence (DDCI), this memorandum outlines a strategic plan for the
Requirements and Evaluation (R&E) elements of the Intelligence Community Staff
(ICS), and for the Deputy Director for Requirements and Evaluation (DDR&E),
during the coming months.
2. The take-off point for this plan is the memorandum the DDCI sent as
Acting Director to the National Foreign Intelligence Council in May 1987,
describing the reorganization of the ICS. In that memorandum, he also set out
some objectives for the ICS, especially the R&E elements. For completeness, a
copy of that memorandum is attached.
3. This strategic plan is a straightforward treatment of how the R&E
elements and DDR&E intend to achieve the goals of the DDCI's memorandum.
4. In overview, this memorandum contains a description of DDR&E's goals
and objectives, a brief summary of what has been done so far to address these
goals, an outline of what more needs to be done, a discussion of the schedule
and resource implications of executing this plan, and an estimate of where we
will be if all of this takes place.
5. The context of our effort, however, has to be clear and kept up front
in our minds. The context is this: the R&E elements all have real, ongoing
work to do, and on top of all that we want to--have to--put some additional,
new work. In the DDCI's memorandum, as in this strategic plan, the primary
focus is on new things that R&E elements should pursue. Much of the existing
work in the R&E elements is not explicitly mentioned here; it exists, will
affect what we do, but it is just not the focus. Nevertheless, we all
recognize that our work (old and new) must be consistent with this plan.
Those portions of our work that are not consistent will?in due course--be
identified, reviewed, and redirected as necessary. This self-corrective step
is a big, important job all by itself. Examples of such constructive steps
are cited later in appropriate places.
crrin-T
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SUBJECT: Strategic Plan for DDR&E
DDR&E Goals and Objectives
6. Consistent with the general guidance contained in the DDCI's May
memorandum, our goals and objectives now are summarized as follows:
o Identify and implement ways to make the structure and prbcess for
requirements in the Intelligence Community better.
o Foster greater emphasis within both the Intelligence Community Staff
and the Intelligence Community on:
-- Understanding, documenting, integrating, balancing, and (for
imagery) tasking consumer requirements for intelligence help.
-- Multidisciplinary (i.e., all-source) approaches to intelligence
collection activities.
o Establish an all-source evaluation mechanism to perform, on a more
comprehensive basis, assessments of both Intelligence Community
performance against requirements, as well as gaps in intelligence
support.
o Improve our ability to evaluate and advise Intelligence Community
leaders on the impact of alternative NFIP investment strategies, based
on broader participation of producers and consumers in assessing how
these strategies would affect intelligence support to policymakers and
the military.
o Respond to requests for ad hoc evaluations on important intelligence
issues, especially those that the DCI and DDCI want addressed.
What Has Been Done?
7. As indicated in the attached manifest of major completed or ongoing
substantive efforts in R&E, ?we have achieved a decent amount (if not a lot)
already to address each of these boals. However, with some exceptions,
substantive work to date has been driven largely by targets of opportunity and
by ad hoc requests.
8. For example, the "gaps and initiatives" study for the Senate Select
Committee on Intelligence occupied a lot of our time (and that of the
Requirements and Evaluation Office {REO]) during the summer and early autumn.
But we learned a lot about substance and process during that effort, and all
of that is useful right now for current and future R&E activities. More
specifically, we got three big things out of the SSCI study:
o Lists of vital gaps and attractive initiatives for the 1990s.
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SUBJECT: Strategic Plan for DDR&E
o Several additional pieces of work for the next six months (for
example, see items 10 and 11 in the attached manifest at Tab B).
o An interagency process for dealing with Intelligence Community-wide
issues in the Requirements and Evaluation arenas.
9. In addition to the benefits from the SSCI work, during the past few
months we have made similar, notable progress in other areas important to our
objectives. Specifically, we have:
o Created a central library in REO of memoranda/letters from senior
policymakers expressing intelligence needs and concerns.
o Appointed an officer from the Requirements and Evaluation Office to be
a regular contact point for the NSC Staff, so that NSC need for
support can be handled efficiently.
o Increased the flow of finished intelligence documents from Community
producers into the R&E elements and thereby broadened our awareness of
substantive issues.
o Established a process for focusing collectors and producers jointly on
topics of high interest.
Created a means to examine jointly with the National Intelligence
Council (NIC), and other production elements, issues of special high
interest. Examples include:
Chemical and Biological Warfare (CBW).
Monitoring of the INF Treaty.
AIDS.
Collection against Cuba.
Soviet low-observables technology.
Soviet interplanetary space missions.
Monitoring of Soviet nuclear tests.
o Taken steps within the ICS to foster greater cross-discipline thinking
and actions:
Established an ad hoc DDR&E Task Force, to coordinate efforts
across the DCI Collection Committees, REO, and the Intelligence
Producers Council (IPC) Staff. Program and Budget, and Policy
and Planning officers join the effort whenever appropriate.
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SUBJECT: Strategic Plan for DDR&E
Directed more timely sharing of monthly reports among R&E
elements.
Required that multidiscipline issues be worked jointly by the
appropriate Committees, et al. One example is mobile missiles,
where SIGINT and COMIREX operate jointly.
o Moved the Intelligence Producers Council Staff
work on the 5th floor, next to REO.
They now
10. These achievements are useful and worth noting in their own right.
But beyond all that, they are having both a pathfinder and a magnet effect.
First, elements of US intelligence can see that these steps have occurred and
can see that similar steps can be made by and in their own organizations.
Second, these same Intelligence Community elements are drawn to the ICS for
assistance because they can see the obvious added value of an ICS
involvement. For example, one national major collection program asked for our
help recently. The request was to provide an assessment of the program's
utility to the Survey and Investigation Team from the House Appropriations
Committee. This ad hoc, sensitive effort is under way.
What More Needs To Be Done?
11: Although much of our work will continue to be driven by opportunities
and by DCl/DDCI needs, if we want to have a chance to achieve our own goals,
we have to capture control of our own destiny. The key is to design and act
upon concrete, practical steps that will achieve something useful and real.
As a result, it is clear that we need to place part of our emphasis in the
coming months on improving the R&E infrastructure that already exists. The
priorities will be on fixing what is already under our control and is easy to
do, and then attack the harder pieces. When we do so, however, we will need
to proceed in a sequential manner, and from the top down.
12. The most attractive sequence of basic steps appears at present to be:
o ICS resources; i.e., get the DDR&E elements as optimally structured as
possible.
o Intelligence Community requirements; i.e., create a coherent, top-down
system.
o Intelligence Community evaluations; i.e., figure out what to do and
how to do it.
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SUBJECT: Strategic Plan for DDR&E
13. Toward that end, we initiated three reviews a few months ago. One
review is within DDR&E at ICS. Two are within the Intelligence Community at
large. These latter two are reviews of both the requirements and the
evaluation processes in the Intelligence Community so, that we can better
understand where high-leverage improvements are possible in both of these
arenas.
14. The interim results of all three of these reviews have led to the
following first order answers.
15. Resources: First, each of the elements within the DDR&E at ICS
reviewed their existing resources and responsibilities, with an eye toward
identifying where more effort should be placed, and where less effort can be
tolerated. The immediate impacts were to terminate or complete in a truncated
fashion a number of pieces of work in such places as COMIREX, to reassign a
secretarial position from REO to the MASINT Committee, to hire an SIS-level
officer from DIA, and to reassign an SIS officer within the R&E elements.
Other, similar changes will occur in due course.
16. Requirements: Second, REO and IPC officers
conducted an informal, top-level survey of the requirements processes in
th?ntelligence Community. The survey included interviews with a number of
key intelligence consumers, producers, and collectors, asking for their views
on how the existing system might be improved.
17. Results from this review suggest a number of potential improvements;
they were outlined to Intelligence Community leaders at the recent DCI
Off-Site Conference. The more promising ideas include:
o Focusing ICS elements on better support to consumer needs, including
creating or expanding client relationships between requirements
managers and consumers.
o Getting consumers more involved in the SIG(I) and related requirements
processes.
o Merging top-level systems for requirements, producing a single
Intelligence Community system with a single top-level Taxonomy for
requirements categories.
o Using this taxonomy not only for categorizing top-level requirements,
but also as a structure for conducting and indexing the results of
all-source evaluations of intelligence capabilities, gaps, and future
reporting requirements (more on this below).
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SUBJECT: Strategic Plan for DDR&E
o Establishing a process (perhaps as part of the all-source evaluations)
that identifies reporting requirements that all collection disciplines
can draw upon in developing specific collection tasks. This would
consolidate the separate efforts conducted today by each discipline,
and by the IPC for future requirements.
o Creating a mechanism to enable coordination of requirements among
collection disciplines, particularly to address gaps resulting from
limitations of available resources in a single discipline.
Each of these steps is a major event and, at present, we have not had time to
design a way to implement them.
18. Evaluations: Third, a REO officer has begun a
survey of existing evaluation systems and activities to better understand what
types of evaluations are currently done by Intelligence Community elements and
to suggest where additional evaluative work by the ICS can have the greatest
impact. At the moment, we expect this survey will be completed in the
December-January time frame.
19. Initial indications, together with the results from the requirements
review, suggest at present that the focus of DDR&E on all-source evaluations
should be in two basic areas:
o Scheduled assessments, conducted periodically for each of the
categories contained in the top-level requirements taxonomy described
above.
Outputs from these, in addition to common reporting requirements
(described above), could include:
-- Capability and gap statements describing current intelligence
performance. These statements would be the raw materials for
such documents as:
- Preparing the DCI's annual program Guidance to the Community
on areas to emphasize in upcoming budget submissions.
- Assessing alternative investment strategies as part of the
DCI's annual review of the NFIP.
Guiding the selection of those intelligence problems that
deserve more in-depth study via ad hoc working groups.
- Preparing the overview justification of annual budget
requests to the Congress in "substantive" terms.
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SUBJECT: Strategic Plan for DDR&E
-- Recommendations on ways to improve performance through both
procedural changes and future investments.
o Ad hoc assessments, conducted on demand for high interest items,
normally with broad Intelligence Community participation.
There is no shortage of demand for these; our problem will be in
deciding which efforts deserve commitment of our limited
resources.
We are developing a good procedural relationship with the NIC and
Production Committees in this area, and there is strong potential
for further, useful collaboration.
It is fair to report that, even more than in the case of requirements, we have
not had time to figure out thoughtfully how to do all of these steps.
How Fast Can We Do All of This?
20. The above paragraphs represent a mind-boggling amount of work, with
far-reaching impacts on both ICS and the Intelligence Community. Rice bowls
will be cracked and perhaps a few will be broken; that may be a good thing.
In any case, progress will be slow, for at least three reasons. One is that
the work is hard and is "new;" it will take time. Another very practical
constraint is that ICS has a limited number of experienced people in REO
(10-12, including secretaries) and the IPC Staff (five to six, including
secretaries) that can reasonably undertake these efforts. In addition, the IC
Staff's budget limitations (beginning with the recent, unfortunate problems
with the SSCI Staff) offer little prospect in the near term for significant
position increases.
21. All of this leaves three basic alternatives. We are and will be doing
all three:
o Reallocate positions within the ICS. Some reallocation is under way,
and more is possible, but not a lot.
The reality is that much of the new work in this strategic plan is
above and beyond important work that elements in DDR&E already have on
their fairly full plates. If we add, and we will, some things will
not get done and a few things may not get done well.
For example, the COMIREX staff can make an outstanding case for
additional people both to take advantage of and properly task the
upcoming new imagery systems and to develop the new, next-generation
Requirements Management System.
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SUBJECT: Strategic Plan for DDR&E
Further, the MASINT staff is still struggling to reach a critical mass
sufficient to handle this "growth" discipline.
o Borrow detailees from the Intelligence Community for ad hoc,
short-term studies. This worked well on the SSCI study and, for high
visibility efforts, we can do a lot this way.
Further, we are capturing and putting to good use temporarily people
from such diverse places as the Federal Women's Executive Program,
CIA's Career Trainee program, and so on.
o Delegate specific tasks to Intelligence Community working groups under
ICS oversight or management.
This has been helpful in some cases; one example is the SSCI follow-on
study. However, there are problems in this because we cannot control
the diversion in the parent organizations of these resources to
competing tasks of interest.
22. Notwithstanding these real and pacing concerns, the R&E elements have
made a pretty good start and can make a lot of additional progress in the next
three to six months. One of the biggest challenges will be balancing our
efforts--on requirements and evaluations--between scheduled and ad hoc
assessments. All such work will draw from the same limited pool of talent,
and we will have to resist the temptation to put our precious resources on ad
hoc efforts at the expense of important "infrastructure building."
Help Needed from the DCl/DDCI
23. The key new points of help we need from the DCI and DDCI at this point
are:
o General agreement that the strategy outlined here is worth pursuing
and where they collectively want to go.
o Tolerance of, if not specific agreement with, the first order details
in this plan, adding any changes or other ideas they desire.
If Implemented, Where We Will Be And When?
24. As we continue going down this road, with about six months behind us,
we want to keep our figurative eye on the expected outcome. By about
mid-1988, we expect to have in place most of the improvements cited in this
strategic plan. In the requirements area, many of the remaining new elements
can be in place within six-nine months. We will have started implementation
of a top-level requirements process that is more understandable by everyone
and a lot more usable by consumers.
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25. In the evaluation arena, we will have created a process that uses the
taxonomy from this same requirements system to routinely identify and
categorize intelligence gaps and then use those gaps as a substantive basis
for formulating DCI guidance, evaluating investment decisions, and placing the
results from ad hoc evaluations in an overall context. Our goal is to have
enough of this done to support significant substantive inputs into the FY 1990
budget deliberations next summer/autumn, and to help guide the formulation of
the DCI's guidance to the Community for the FY 1991 program build.
Attachments:
A. DDCI Memo, 7 May 87
B. Manifest of R&E Actions
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Attachment A
fr:Nr
NATIONAL FOREIGN INTELLIGENCE COUNCIL
%AsHiNctos. DC. MOS
NFIC 1.7/3
15 May 1987
MEMORANDUM FOR: National Foreign Intelligence Council
SUBJECT: Reorganization of the Intelligence Community Staff
1. In response to growing concerns that we needed to do a better job of
orchestrating Community efforts in a number of areas, including more
systematic evaluation of our performance against intelligence requirements,
the DCI and I asked It Gen Heinz, upon accepting the job as Director of the
Intelligence Community Staff (ICS), last September, to look at ways that he
might reorganize the Staff to better address these areas. We have discussed
some-qf the alternative structures at the last two off-site planning
conferences. Although we have experienced a number of delays in making this
reorganization a reality, I believe that we now have the details in place for
a restructured staff which will improve support to the DCI in executing his
Community responsibilities. 25X1
2. The focus of the restructured IC Staff is primarily on improving our
capabilities to provide:
? Systematic, comprehensive evaluation of Intelligence Community
performance, to include:
MO, ON
Better assessments of consumers' intelligence needs (as
articulated in the National Intelligence Topics NITS) and the
Future Intelligence Requirements Forecast (FIRF]), and how these
needs translate into both near- and long-term production and
collection requirements.
A better linkage between known intelligence production and
collection requirements/shortfalls and future investment
strategies.
? A more integrated assessment of collection requirements and
collection system performance across disciplines.
? Stronger involvement of Community production elements in our
assessments of requirements satisfaction, including movement of the
Intelligence Producers Council Staff to the ICS and a closer ICS
association with the National Intelligence Council and the DCI
Production Committees.
CONFIDENTIAL
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SUBJECT: Reorganization of the Intelligence Community Staff
? More emphasis on identifying and nurturing investments in research
and development critical to future intelligence capabilities. 25X1
3. To address these goals, the IC Staff is now organized with two
deputies under It Gen Heinz, as outlined in the attached chart. The senior
Deputy Director, Mr. William F. lackman, Jr., is charged with administrative
responsibilities associated with running the Staff, as well as theoerierel
oversight of all Staff activities In the absence of It Gen Heinz. Li 25X1
4. The second deputy position, with the title Deputy Director for
n 1
Requirements and Evaluation, will be occupied by most 25X1
he Director of the DCI's Arms Control Intelligence Staff at CIA.
has already begun the transition to his new job, and he will be 25X1
uy npace by 1 June. He will be responsible for organizing the
requirements and evaluations side of the Staff, with emphasis on providing a
structured mechanism for translating policymakers intelligence needs into
requirements, assigning priorities to these requirements, evaluating
collection and production performance against these requirements, and, through
these evaluations, providing feedback both for near-term improvements and
future investment strategies. 25X1
5. Clearly this whole area of evaluation is a challenging one that we
have never addressed adequately across the Community. However, I believe that
we must tackle this problem head-on if we are going to improve the performance
of our Intelligence Community and our ability to justify before the Congress
our needs for continued budgetary growth to support increasing U.S. national
security needs. We have a number of ideas on how to at least begin the
process. For example, we are certain that a greater emphasis on the
evaluation of requirements and performance across intelligence collection
disciplines is required, as well as a more systematic assessment of the
shortfalls that are routinely identified by the producers in the Community.
Thus, as shown in the chart, we envision a such closer tie to the DC!
Collection and Production Committees and the National Intelligence Council
than we have had in the tailed plans implementing these changes a
now being developed as transitions to his new responsibilities. 25X1
6. Another organizational change that we are making involves the creation
of a new Research and Development (R&D) Coordination Office on the Staff.
This group will be responsible for fostering dialogue and nurturing
investments across the US Government in research and development activities
that have the greatest potential for improving future intelligence
capabilities. We have had general discussions with the senior RAD managers in
the Community as to how we might best implement this new concept, and their
responses have been very encouraging. The details of the new office are
taking shape, and I expect that we will be able to announce the new office
director and his initial plans for this effort very soon. 25X1
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SUBJECT: Reorganization of the Intelligence Community Staff
7. As discussed at the off-site conference on 11 May, I encourage you to
provide me or It Gen Heinz your thoughts on approaches we should emphasize, as
well as those we should avoid in setting the agenda for the new activities of
the Staff. For the effort to be successful, we need to learn from past
mistakes and fully incorporate into our planning your views as senior managers
of the Intelligence Community. 25X1
8. Finally, I want to solicit your support in advance in helping us fill '
key supporting positions on the IC Staff. I believe that we have an excellent
management team in place, but they cannot do the job alone. Successful
execution of their new responsibilities will require the strong support of all
Community elements, including a willingness to assign our best people to our
tasks--for short periods and, on occasion, for longer ones. We will be asking
manypf you fciracsistance in this regard as we evolve into our new
organfzation. 25X1
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Attachment:
As stated
ert . es
Acting Ch rman
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Deputy Director for
Itagaireinslists and
Evaluation
Intelligence Community Staff
National Intelligence
Council*
I DCI Advisory Oodles},
SO II
1PrOdUCtiOnl.
COMM X Staff
intelligence Producers
Council Staff
DIRECTOR ,ICS
DEPUTY DIRECTOP.ICS
IEitecutive Officer
Military Assistants
Administrative Staff
Requirements and
Evaluation Office
SIGINT
Committee Staff
Liaison
Staff
H Spiels! Assistant
for
Emergency Planning
PAASINT
Committee Staff
Secretarial Staff
Planning and
Policy Office
lorogrwn and
Budget Office
R&D
Coordination
Of Vic.
Community CI fl.
Swum," CM Of fn.-
Inform:4*cm
Handling
Committee Staff
76 April 191tI
*Prnviditt
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MANIFEST OF MAJOR NEW R&E ACTIONS
A. Done:
Attachment B
1. Final (and Interim) DCI Report to the Senate Select Committee on
Intelligence entitled "Strengthening US Intelligence Capabilities
Against the Soviet Military in the 1990s." (Lead: DDR&E; Support:
all R&E elements)
2. A Strategic Plan for DDR&E for submission to the D/ICS for the DDCI.
(Lead: DDR&E; Support: all R&E elements)
3. Reviewing Community Foreign Material Acquisition Shortfalls, for
submission to DDR&E by November. (Lead: HUMINT; Support: CIA/GDIP)
4. Evaluation of the best use of our next space booster. This was done
twice, in October and November. (Lead: REO; Support: COMIREX and
SIGINT)
B. Under Way or to be Done:
5. Conducting SSCI follow-on study on a new satellite concept, for
submission to DCI by early January. (Lead: REO/P60; Support: ICS and
Community)
6. Completing of FSCS work, for submission to DCI and NFIB by late
January. (Lead: SIGINT; Support: Community)
7. Reviewing requirements systems, for final submission to DDR&E by
early December with interim results/actions as available. (Lead:
REO/IPC Staff)
8. Reviewing evaluation systems, for submission to DDR&E in late
December-January with interim results/actions as available.
(Lead: REO)
9. Ten-Year Guidance for the Imagery Community. (Lead: COMIREX)
10. Reviewing counterintelligence collection requirements, for final
submission to DDR&E by late December. (Lead: HUMINT; Support:
Community CI elements)
11. Reviewing impact of Soviet spread spectrum on US intelligence
capabilities, for submission to DDR&E by late 1987. (Lead: SIGINT,
NIOIS&T)
12. Assessing impact of $1.x billion budget cut, for use by DDR&E in
budget deliberations. (Lead: REO/PBO; Support: all R&E elements)
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13. Implementing multidisciplinary actions, for review and action by
DDR&E as soon as possible. (Lead: REO; Support: all R&E elements)
14. Assessing utility of a national major collection program, for use by
DDR&E and others with S&I/HAC in mid-December. (Lead: REO/CRES;
Support: IC elements)
15. Integrating INF monitoring requirements and priorities across
collection disciplines, for Ch/ACIS and DDR&E by early 1988. (Lead:
REO; Support: Collection Committees)
16. Review nuclear testing requirements, priorities, and capabilities for
Ch/ACIS and DDR&E, by early 1988. (Lead: REO; Support: Collection
Committees, JAEIC, ACIS)
17. Developing National Intelligence Collection Guide for Soviet Low
Observables for NIO/S&T and DDR&E by late January 1988. (Lead: REO,
NIO/S&T, STIC, WSSIC; Support: IC elements)
18. Developing National Intelligence Collection Guide for AIDS for
Ch/AG/NIC, by late February 1988. (Lead: REO; Support: NIO at Large,
AFMIC)
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