FINAL REPORT OF WORKING GROUP ON ORGANIZATION AND ACTIVITIES

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP86B00269R000400010003-3
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 35
• Document Creation Date: December 15, 2016
• Document Release Date: October 16, 2002
• Sequence Number: 3
• Publication Date: April 6, 1962
• Content Type: MF

 Approvesi.For Release 2002/10/30 : CIA-RDP86B00269R00A40001000 62-2169
6 April 1962
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MEMORANDUM FOR: Director of Central Intelligence
SUBJECT : Final Report of Working Group on Organization
and Activities
1. I have the honor to present herewith the final report of the
working group which you established in January to consult with you and
advise on the organization and activities of the Central Intelligence
Agency, and of its relationship with other agencies in the intelligence
community. This report reflects the views of the working group and is
divided into two parts. The first part deals primarily with the organiza-
tion of the Central Intelligence Agency and reflects the unanimous views
of the working group. - The second part contains comments and recom-
mendations on areas dealing with the work of the Central Intelligence
Agency and activities of the intelligence community in which the working
group was either unable to agree or felt that considerably more study
was needed before action was taken.
2. For the record I would note that the.working group held its
first session on January 3 and met on 35 different days between that date
and its final session with you on March 28. During its work the group
had approximately 100 briefings. Most of these briefings dealt with the
organization and activities of the Central Intelligence Agency, but also
included a full day spent with the Department of State in addition to several
briefings on State Department activities and its relations with CIA; approxi-
mately one-half day spent in the Pentagon in addition to other briefings
by the Defense Intelligence Agency; and a full week spent visiting SAC,
NORAD and other activities in the United States. We were briefed by
the head of every major component in the CIA with the exception of three
DD/P area divisions whose briefings had to be excluded because of the
pressure of time. However, we feel that having heard from four other
area divisions the working group had a knowledge of the activities and
problems of these units. In addition to the 100 briefings, the working
group had more than ten executive sessions in which it discussed and
debated at great length its findings and conclusions. Finally, there were
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some 20 meetings with yourself, and with senior Agency officials to
discuss our findings and conclusions. These included at least two
sessions with each of the Deputy Directors and with the Assistant
Director for National Estimates and the Assistant Director for Cur-
rent Intelligence.
3. The attached report does not purport to be complete or ex-
haustive in any respect, but rather it is an aide memoir to recall to
mind our oral discussions and to record some of the reasons and
philosophy behind our recommendations.
Attachment
Lyman B. Kirkpatrick
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 ORB
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This section deals primarily with the organization
of the Central Intelligence Agency and represents
the view of the entire Working Group.
6232169 Att.
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 VTKI 1
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OFFICE OF THE DCI
Organization of DCI's Office
We recommend that the organization of the DCI's office be
changed in order to provide more effective support to the DCI, a
systematized control of messages both oral and written, and a
clear delineation of the responsibilities of the assistants to the
DCI. In this connection we would urge that a secretariat be
created, that the head of this secretariat assign individual re-
sponsibilities to each of the personal assistants to the DCI, that
daily staff meetings be held for a full exchange on the activities
of the staff, and that all personnel in the Agency be advised as
to how to keep the DCI's staff informed properly of the activities
of the Agency.
Comptroller
We recommend that the Comptroller's office be brought
out from under the DD/S, report directly to the DCI1s office and
receive full authority for total fiscal control of the Agency.
We recommend that the Comptroller be designated Chair-
man of a Financial Policy and Budget Committee composed of
the appropriate senior officers of the Agency. We believe that
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such a committee should be kept fully and currently informed of
all Agency activities, and in order to be effective should meet
regularly and submit its reports to the DDCI and DCI.
Inspector General
We recommend that the Audit Staff be combined with the
staff of the Inspector General and that the merged staff report to
the DCI's office.
We believe that the size of the Inspector General Staff
should be increased with qualified professional personnel assigned
from their respective components in order to perform more
frequent inspections of Agency units. We urge inspections at
least annually of major operations and of field stations.
General Counsel
We recommend that the General Counsel's staff be
removed from the organization of the Deputy Director (Support)
and report directly to the, office of the DCI. In such a position
the General Counsel should resume the responsibility for the
direction and guidance of the work of the Legislative Counsel,
which is currently the responsibility of the Inspector General.
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Cable Secretariat
We have examined the Cable Secretariat which is currently
located in the office of the DCI and reports to the Executive Officer.
We believe it should continue to be in the office of the Director under
the careful supervision of the Executive Director. We are con-
cerned that as it now operates requirements for cables have not
been adequately coordinated, and cables have been disseminated
too often on the judgment of junior officers. We believe this needs
careful study.
Contracts
We believe that the Agency is vulnerable on sole-source
contracts for such activities as TSD and DPD, and that those
contracts currently in existence should be reviewed and that all
such future contracts should be passed on by the DCI's office
prior to approval.
Personnel Assignments
We believe that the DDCI and DCI should be the final
approving authority for all assignments to positions of Chief
or Deputy Chief of Offices (DD/P Divisions and Staffs) or of
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We believe the DCI's office should also review all assign-
ments in the middle management echelon with particular reference
to insuring the proper language qualifications, operational training
and suitability.
Public Relations
We recommend that the present system of public relations
by the Agency be changed. While we see the necessity for the
DCI to have an assistant in his office. handling relations with the
public media, we believe that every effort should be made to
minimize the amount of publicity that CIA receives.
We strongly recommend that the present practice of
giving background briefings to newspapermen cease and that
CIA give information to the press only where CIA has something
which for operational reasons should be released on an unattri-
butable basis. We urge that no public speeches be given by
Agency officials.
Reduction in Force
We recommend that the DCI and DDCI insure that the
present reduction in force in the Agency include senior officers,
particularly supergrades who are no longer as effective as they
should be in their assignments.
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 Handling of Communications Other Than Cables
We note that under present arrangements communications
other than cables are handled by the Records Integration Division
of DD/P, which is not always fully cognizant of the interests of
non-DD/P parts of the Agency. We recommend that the entire
system of handling incoming and outgoing communications be
subjected to further study with a view to insuring adequate dis -
semination of all communications, particularly in DD/I, DD/R
and DD/S, which may have need for prompt receipt of such
material.
Executive Director
We have not tried to spell out the responsibilities of the
Executive Director, inasmuch as we believe this to be primarily
a matter that should be tailored to the personal preferences of
the DCI and DDCI and how they wish to operate their office and
the Agency. We urge, however, that special attention be directed
to the avoidance of a straight vertical line of command; i. e. , all
problems should not have to pass through each of the three officers.
Executive Committee
We recommend the creation' of an Executive Committee
to be chaired by the DDCI and consist of the four Deputies, the
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Comptroller, and the Assistant to the DCI for Coordination and
Intelligence Community Guidance. This Committee, from a
policy standpoint, would review proposed major projects and
maintain a continuous review of all major activities and make
appropriate recommendations thereon to the DCI. This Com-
mittee would replace the present Project Review Committee.
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SERI I
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ORGANIZATION AND ACTIVITIES OF THE
DEPUTY DIRECTOR (PLANS)
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Fi T
Office of the DD/P
We commend the decision of the DD/P to abolish the position
of the A/DDP/A, and believe that the restoration of the previous
organization with just the DD/P and COP in the line of command
in the front office will result in a clear delineation of responsibili-
ties and more efficient operations.
The Staffs
We studied at some length the staffs in the DD/P. We con-
sidered a possible merger of the FI, CI and CA staffs. We also
studied proposals for divesting the staffs of all operational responsi-
bilities. We believe that while both are desirable objectives, neither
are practicable under present circumstances. We therefore urge
that the FI, CI and CA staff functions be drawn closer together
under the Chief of Operations and that these organizations insofar
as practical act in the classical sense as staffs for the DD/P. We
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Merger of Covert Action Staff and International Organizations Division
The DD/P has advised us of his desire to merge the Covert
Action Staff with the International Organizations Division. While
this is contrary to the trend of divesting staffs of operational duties,
we nevertheless do not observe any major reasons against such a
merger and believe that it should be tried out in accordance with
the DD/Pls wishes.
Central Support Staff
We recommend that the DD/P draw together into a Central
Support Staff control of personnel and other support matters cur-
rently decentralized to the divisions and staffs in order to locate
these functions directly under him.
Special Task Force Operations
We recommend the creation of an organizational entity to
be known as "Special Task Force Operations" reporting directly
to the DD/P, which shall be activated and deactivated upon need,
and which shall be the command mechanism for handling such
projects as the Cuban operation which demands the creation of an
organization from Agency-wide assets.
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Liaison with Department of State
We urge that the DD/P centralize liaison with the Department
of State and maintain careful records of all discussions between the
Agency and State Department officials. We note that nearly every
area division chief has a weekly meeting with his counterpart in the
Department but that under the present system there is no organized
method for keeping the central management of the DD/P informed
of what takes place at these meetings.
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ORGANIZATION AND ACTIVITIES OF THE
DEPUTY DIRECTOR (INTELLIGENCE)
Office of the DD/I
We have carefully reviewed the organization and activities
of the DD/I's immediate office and believe that with the addition
of a full time deputy he will be able to assert the degree of
influence on the management of the units under him required for
sound operations. At present his three office assistants provide
good staff work in this review, but we did observe that a con-
siderable amount of the intelligence produced in the DD/I area
is reviewed at no higher a level than office chief, if that.
We recommend that the DD/I establish in his office a
focal point through which all intelligence, processed or unevaluated,
going to the White House must flow. If for reasons of urgency a
report is sent to the White House prior to evaluation, we recom-
mend that a special notice to the effect that it is unevaluated be
attached to the report and that an evaluation follow the report at
the earliest possible moment.
Board of National Estimates
The Office of National Estimates should be strengthened by
the addition of one top-level foreign affairs expert to the Board of
Estimates, and if obtainable a top-level scientist and a top-level
economist. We also believe that the Board would benefit by the
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addition of an individual experienced in business in the international
field, provided one of sufficient caliber could be found who would
be willing to spend two or three years on the Board of Estimates.
Control of Estimates
We urge that the DCI utilize the USIB to control the
scheduling and to limit the number of National Estimates.
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ORGANIZATION AND ACTIVITIES OF THE
DEPUTY DIRECTOR (SUPPORT)
Security Office
We recommend that the burden on the Security Office for
support of the DD/P be reviewed (see DD/P section). In the
meantime, we believe that a careful look at the Security Office
is necessary to insure that the volume of work it is carrying
is not in any way jeopardizing its primary responsibility of
insuring that every possible measure is taken to keep the Agency
secure.
We recommend that all security clearances be centralized
under the Office of Security; e.g., clearances that are issued
by DPD, OCI, NPIC, and other Agency components. While we
would leave the policy of granting clearances with the appropriate
officials, we believe that the Office of Security should maintain
a centralized index for special clearances and do all of the
processing of these clearances.
. We recommend that the Inspection and Audit Staff check
regularly on activities in the
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concern to the Agency.
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DPD Support
We recommend that the DD/S be given the responsibility for
support to all projects under the control of DD/R, providing of
course the necessary security safeguards, and that in the future
no parallel support mechanism be developed in the Agency.
Automatic Data Processing
We believe the Automatic Data Processing Staff can
properly remain under the DD/S inasmuch as this is a support
mechanism, although we strongly recommend that the DD/S
in consultation with other deputies concerned direct this staff
to aggressively pursue the objective of automation in the Agency
in such a way as to insure the ultimate compatability of auto-
matic data processing systems throughout the intelligence
community.
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ORGANIZATION AND ACTIVITIES OF THE
DEPUTY DIRECTOR (RESEARCH)
The Office of the Deputy Director (Research) having already
been created, we now make the following recommendations as to-
those units which should be included under this Deputy.
Development Projects Division - Special Projects Branch
We recommend that the Special Projects Branch of DPD
plus the necessary supporting elements, including those projects
supporting the Department of Defense in advance reconnaissance
programs, be placed under DD/R.
Technical Services Division
We recommend that all TSD research and development
be placed under DD/R.
Other Research and Development
We recommend that the extent to which research and
development for SIGINT collection equipment, including agents'
SIGINT equipment, air-borne collection, etc., should be transferred
to DD/R, be left as a matter for negotiation and agreement between
DD/I and the Director of Communications.
'We recommend all research and development in support of
NPIC be transferred to DD/R.
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This section contains comments and recommendations on areas
of the work of the Central Intelligence Agency and activities of the
intelligence community in which the working group was either unable
to agree, or felt that considerably more study was needed before
action is taken. These views are presented herewith so that they
may assist and guide those who may be asked to pursue these matters
further.
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Coordination
We note your intention to abolish the present office of the
Assistant for Coordination and to create in its stead an Assistant
to DCI for Coordination and Intelligence Community Guidance.
With the exception of Mr. Coyne, we are fully'in accord. We set
forth below our concept of the principal functions of this Assistant.
a. He should be the DCI's principal advisor on coordina-
tion matters within the community and his personal representative
in dealing on such matters with top officials of the community.
b. When so directed he should represent the DCI in
negotiations and discussions on intelligence matters with appropriate
officials of foreign governments.
c. He should be responsible for development of Comint
and Elint policy insofar as this is an Agency function.
d. He should keep continually under review the general
extent and direction of the intelligence efforts of the community to
insure that such efforts fully and effectively support national policy,
submitting reports and recommendations to DCI as appropriate.
e. He should correspondingly maintain a continuing
review of activities and efforts of the Agency to insure that they
remain fully and effectively coordinated with the activities and
efforts of other members of the community.
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We do not consider it practicable at this time to suggest the
number or qualifications of supporting staff officers for this
Assistant. We feel, however, that he will need a group of such
officers and that they should be of particularly high caliber and
broad experience. The functions we visualize for this office are
highly important for the community and for CIA. They have not
been adequately handled in the past. The Assistant should be given
whatever staff the full development of his role may later require.
Mr. Coyne does not concur in this recommendation. He dis-
agrees with (a) the proposed organizational placement and title of
the recommended office, because this would perpetuate the present
ineffective arrangement of the Coordination Office now in existence
and would not provide the recommended office with the stature required
to assist the DCI in fulfilling his heavy responsibilities throughout
the Intelligence Community; (b) the limitations in the functional
concepts of the office, as outlined above. Further, he does not con-
cur in this recommendation because it does not distinguish sufficiently
the internal CIA operating functions of the DDCI from the community-
wide functions which the recommended office must perform if the
DCI is.to execute effectively his principal mission as assigned in
the President's Directive of January 16, 1962. Mr. Coyne believes
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that if the office is established along the lines recommended above,
it will be incapable of effectively assisting the DCI in performing
his principal Presidentially-assigned responsibilities of (a)
coordinating and effectively guiding the total U. S. foreign intelli-
gence effort; (b) establishing necessary policies and procedures to
assure adequate coordination of foreign intelligence activities at all
levels; (c) maintaining a continuing review, with the heads of the
Departments and Agencies concerned, of the programs and activities
of all U. S. agencies engaged in foreign intelligence activities; and
(d) assuring efficiency and effectiveness, and avoiding undesirable
duplication in the total foreign intelligence effort. Mr. Coyne will
submit his recommendations on this subject at a later date.
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National Photographic Interpretation Center
We are concerned about the capability of NPIC to handle what
may be a greatly increased volume of work in coming months. We
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recommend that as a matter of priority the USIB have this matter
reviewed and insure that any increased flow of raw material does
not result in slowing down the prompt and complete processing so
urgently required.
Caliber of Personnel
We believe that the DD/I should devote some considerable
effort to improving the caliber of personnel in his offices. Although
we did not make a study in depth, we believe that there is a serious
problem in this regard in OCI and that steps should be taken under
the new management of OCI to improve the caliber of supervisory
personnel and thus improve the morale of that office.
Merger of ONE and OCI
We studied at some length the feasibility of merging the Office
of National Estimates with the Office of Current Intelligence. We
found the Office of Current Intelligence eager for a merger, the
Office of National Estimates strongly opposed. The DD/I was inclined
to favor it, but foresees certain personnel difficulties. We do not
believe that such a merger would be wise unless it was well esta-
blished that the result would be the creation of better national estimates
and current intelligence dailies and weeklies. The DD/I feels that
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he should be given at least sixty days to explore this proposal and
to prepare his recommendations. We concur.
Mr. Coyne does not agree' with the above paragraph and in lieu
thereof recommends that the ONE and OCI be merged now. He
believes that such merger will result in improved intelligence
products to support the national policy makers.
Preparation and Dissemination of Memoranda
We have noted considerable unhappiness in the Department of
State because ONE and OCI have established the practice of distri-
buting throughout the community, and to the White House, uncoordinated
memoranda on intelligence matters. These memoranda are prepared
as "think pieces", but the Department of State feels that they often
seem to influence policy at high levels. We think the Department
of State has a point, and we urge that such memoranda be carefully
restricted to circulation within the Agency unless or until they have
been coordinated across-the-board.
We also urge that the DCI adopt the practice of asking other
agencies to prepare such memoranda if the subjects fall within the
purview _of their responsibilities; e.g., the Department of State on
strictly political matters. We believe that, at a minimum, when
CIA is asked for a memorandum that inquiries should be made of
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other departments to determine whether such a memorandum hasn't
already been prepared or might be in the process of preparation.
White House Relations
We are concerned about Agency relationships with the White
House insofar as handling of intelligence matters is concerned. We
would like the opportunity to discuss this with you orally before
framing recommendations.
Research on International Communism
We are concerned about the reported inadequacy of research
done on International Communism. At the present time some is
done in the DD/I area in both OCI and ONE, some is done in the DD/P
area in the International Communism Division of the Counter Intelli-
gence Staff, and some is done in the State Department in the Special
Studies Group of INR. The DD/I expressed himself as believing
this was sufficiently covered. The Chief, CI Staff believes it is
insufficiently covered. Representatives of the Department of State
urged that greater expertise be brought to bear on the subject.
Inasmuch as it will fall squarely on the shoulders of the DCI if not
enough is being done, we urge that the matter be reviewed by the DCI
at an early date to satisfy himself that all necessary research in this
field is being accomplished.
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Office of Scientific Intelligence
On the new chart we have shown OSI as a division under DD/R
since we understand this to be -your desire. We feel, however, that
OSI in its major activities is more closely linked to DD/I than to
DD/R and therefore more properly belongs under DD/I. DD/I himself
strongly supports this view and urges that he retain OSI. We believe
that if this is approved, scientists in OSI should be members of DD/R's
career service, subject to transfer between OSI and units of DD/R as
might be agreed between the deputy directors concerned.
DD/R's Operational Responsibilities
We have some concern relative to your intention to have DD/R
carry into the operational phase his responsibility for certain major
projects involving complex and coordinated operations which are
highly sensitive and where a mis-step could have serious national
or international repercussions. DD/R's key people will be mostly
scientists, technological experts or leaders in specialized develop-
ment fields. Such individuals on the average have no professional
intelligence operating experience and little background or interest
in detailed operational problems requiring thorough inter-agency
coordination, painstaking and tedious follow-up actions and careful
attention to security details. DD/P, on the other hand, has a number
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of top-flight people who for some years have dealt almost exclusively
with just such problems.
We recognize all the difficulty, in the course of a project of this
type, of shifting responsibility from one deputy to the other; and we
realize that development must also lap over into the operational
phase. We suggest having as a general rule (but granting that excep-
tions will arise) that when operation begins the responsibility for the
operations should be the DD/P's, but that DD/R should retain his
responsibility for seeing that the equipment he has developed continues
to function properly. There is here attached a specially classified
r; ?r c1ck`T
(oXC, 33a~
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ORGANIZATION AND ACTIVITIES OF THE
INTELLIGENCE COMMUNITY
National Indications Center - Watch Committee
We have examined quite carefully the National Indications
Center, its organization, its capacity to support fully the Watch
Committee, and its relations with other departments and agencies.
We note that opinions within the community concerning NIC and its
functions vary widely -- from the feeling that it should be abolished,
or combined with DIA indications center -- to the belief that it is
entirely satisfactory in its present situation. We do not fully sub-
scribe to either of these views.
The functions of the Watch Committee, and NIC, with their
terms of reference, were developed prior to the time when DIA was
created. Now DIA has developed a strong capability to provide both
early warning and indications of approaching crises to the community.
Its capacity in this regard will develop even further in the months
ahead.
We are aware that USIB is now considering the Fitch Committee
Report. But we doubt that few if any members of that Committee
were intimately aware of the full capacity of DIA and of its future
plans. We note that General Carroll was reluctant to be drawn into
the Committee's deliberations.
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We recommend, therefore, that except as noted below, NIC
operations be allowed to continue as they are for the next three. or
four months. At that time we recommend a thorough review of the
Watch Committee and NIC operations, particularly in the light of
DIA's capabilities and activities, with a view to redefining the
responsibilities and functions of NIC as may then appear desirable.
Mr. Coyne disagrees and recommends that the NIC be abolished
now, and that the DIA be assigned the national strategic warning
function and that its personnel complement be enlarged to include
representation from appropriate members of USIB. Mr. Coyne
points to reasons outlined in his memorandum to the DCI dated
February 5, 1962.
We do believe that the National Indications Center should be
properly manned and should receive both the high caliber of per-
sonnel at the proper grade and the number of personnel to perform
its function promptly and efficiently. In this connection the Depart-
ment of State has no representatives at NIC at present and the DCI
should ask the Secretary to remedy this situation immediately.
We would suggest a change in the present method of preparing
the Watch Committee report. If NIC is adequately manned, we see
no reason why it should not draft, 24 hours in advance, the weekly
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Watch Committee report, circulate it to all agencies for considera-
tion prior to discussion at the Watch Committee meeting when it
could be decided upon in final form and reproduced and disseminated.
Related to the Watch Committee -- but also an important aspect
of all coordinated intelligence community reports -- we believe that
substantive disagreements should be encouraged and even spelled
out in Watch Committee reports; that NIEs and SNIEs rather than
being suppressed or covered by watered down language as is some-
times the case today, in all cases should reflect the consensus of
views of the intelligence community. If there are differing minority
views on the part of one or more agencies, including CIA, these
should be spelled out in appropriate footnotes.
CIA Relations with the Department of State
We examined the relations of CIA with the Department of State.
Several matters of concern in this area are mentioned in the section
on the DD/P.
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State's Operational Center
We reviewed with some interest the embryonic operational
center which the Department of State is developing. We found that
this is an interesting development and would obviously have bearing
on the intelligence community.
State at White House Briefings
We recommend that in accordance with the present practice of
a representative of the Defense Intelligence Agency attending the
briefings of the White House staff by CIA, that a representative of
the Department of State also be invited to attend these meetings.
Receipt of Top Classification Messages
We recommend that the DCI take up directly with the President
the problem of receiving all pertinent messages dealing with foreign
affairs which might have any bearing on intelligence estimates or
reports, or on covert operations. We have particularly in mind
such communications as between the President and Khrushchev, etc.
We believe that it is important for the DCI to see such messages in
order to give proper guidance to the intelligence and operational
activities of the Agency.
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