Considering the Creation of a Domestic Intelligence Agency in the United States, 2009: Lessons from the Experiences of Australia, Canada, France, Germany, and the United Kingdom

218 Pages·2009·0.95 MB·English

by  Brian Jackson

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Considering the
Creation of a Domestic
Intelligence Agency in
the United States
Lessons from the Experiences of Australia, Canada,
France, Germany, and the United Kingdom
BRIAN A. JACKSON, EDITOR
Contributors: Peter Chalk, Richard Warnes, Lindsay Clutterbuck, Aidan Kirby
Prepared for the Department of Homeland Security
HOMELAND SECURITY PROGRAM and
the INTELLIGENCE POLICY CENTER
This research was sponsored by the United States Department of
Homeland Security and was conducted jointly under the auspices of the
Homeland Security Program within RAND Infrastructure, Safety, and
Environment and the Intelligence Policy Center of the National Security
Research Division.
Library of Congress Cataloging-in-Publication Data
Considering the creation of a domestic intelligence agency in the United States : lessons
from the experiences of Australia, Canada, France, Germany, and the United
Kingdom / Brian A. Jackson, editor.
p. cm.
Includes bibliographical references.
ISBN 978-0-8330-4617-8 (pbk. : alk. paper)
1. Intelligence service—United States. 2. Intelligence service—Western countries.
3. Terrorism—United States—Prevention. 4. Terrorism—Government policy—
United States. I. Jackson, Brian A.
JK468.I6C66 2009
363.28—dc22
2008046790
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Preface
With terrorism still prominent on the U.S. national agenda, whether
the country’s prevention efforts match the threat it faces continues to
be central in policy debate. One element of this debate is questioning
whether the United States, like some other countries, needs a dedi-
cated domestic intelligence agency. To examine this question, Con-
gress directed that the U.S. Department of Homeland Security Office
of Intelligence and Analysis perform “an independent study on the fea-
sibility of creating a counter terrorism intelligence agency” (U.S. Con-
gress, 2006, p. 122). The results of this study are presented in three
volumes:
(cid:116)(cid:1) This volume contains case studies of other nations’ domestic intel-
ligence organizations and activities.
(cid:116)(cid:1) An additional volume, published separately, The Challenge of
Domestic Intelligence in a Free Society: A Multidisciplinary Look
at the Creation of a U.S. Domestic Counterterrorism Intelligence
Agency (Jackson, 2009), presents a series of papers examining
the U.S. context for domestic intelligence, current activities, and
varied approaches for assessing options.
(cid:116)(cid:1) The overarching policy results of the assessment, including a
discussion of the pros and cons of creating a new intelligence
organization, are included in a companion volume to this work:
Reorganizing U.S. Domestic Intelligence: Assessing the Options
(Tr everton, 2008).
iii
iv Considering the Creation of a Domestic Intelligence Agency in the United States
This volume should be of interest to homeland security
policymakers, state and local governments, law enforcement orga-
nizations, civil rights and civil liberties organizations, and private-
sector organizations with interests in homeland security. This study is
part of a larger body of RAND research related to homeland security,
intelligence, and terrorism. Related RAND publications include the
following:
(cid:116)(cid:1) Peter Chalk and William Rosenau, Confronting the “Enemy
Within”: Security Intelligence, the Police, and Counterterrorism in
Four Democracies, MG-100-RC, 2004
(cid:116)(cid:1) K. Jack Riley, Gregory F. Treverton, Jeremy M. Wilson, and Lois
M. Davis, State and Local Intelligence in the War on Terrorism,
MG-394-RC, 2005
(cid:116)(cid:1) Brian A. Jackson, Peter Chalk, Kim Cragin, Bruce Newsome,
John V. Parachini, William Rosenau, Erin M. Simpson, Melanie
Sisson, and Donald Temple, Breaching the Fortress Wall: Under-
standing Terrorist Efforts to Overcome Defensive Technologies, MG-
481-DHS, 2007.
The RAND Homeland Security Program
This research was conducted jointly under the auspices of the Home-
land Security Program within RAND Infrastructure, Safety, and Envi-
ronment and the Intelligence Policy Center of the National Security
Research Division. The mission of RAND Infrastructure, Safety, and
Environment is to improve the development, operation, use, and pro-
tection of society’s essential physical assets and natural resources and
to enhance the related social assets of safety and security of individuals
in transit and in their workplaces and communities. Homeland Secu-
rity Program research supports the Department of Homeland Security
and other agencies charged with preventing and mitigating the effects
of terrorist activity within U.S. borders. Projects address critical infra-
structure protection, emergency management, terrorism risk man-
Preface v
agement, border control, first responders and preparedness, domestic
threat assessments, domestic intelligence, and workforce and training.
Information about the Homeland Security Program is available
online (http://www.rand.org/ise/security/). Inquiries about homeland
security research projects should be addressed to
Andrew Morral, Director
Homeland Security Program, ISE
RAND Corporation
1200 South Hayes Street
Arlington, VA 22202-5050
703-413-1100, x5119
[email protected]
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rity Research Division (NSRD). NSRD conducts research and analysis
for the Office of the Secretary of Defense, the Joint Staff, the Unified
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For more information on RAND’s Intelligence Policy Center,
address queries to
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RAND Corporation
1200 South Hayes Street
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Contents
Preface ............................................................................. iii
Figure and Tables ................................................................ xi
Acknowledgments ..............................................................xiii
Abbreviations .....................................................................xv
CHAPTER ONE
Introduction ....................................................................... 1
Defining Domestic Intelligence .................................................. 3
Arguments for Change in Current Domestic Intelligence Policies ........... 6
About This Study .................................................................. 8
Examining Other Nations’ Experiences with Domestic Intelligence ...... 9
About This Volume and Companion Volumes from the Study ...........11
CHAPTER TWO
Australia ...........................................................................13
Peter Chalk
Creation and Relevant History ..................................................14
Mission and Critical Capabilities ...............................................16
Leadership and Human Capital ................................................ 23
Management and Process ....................................................... 24
Organizational Structure and Funding Patterns ............................. 27
Key Relationships with Other Intelligence and Law Enforcement
Agencies ...................................................................... 27
The Australian Intelligence Community .................................... 27
Law Enforcement ...............................................................31
Oversight ...........................................................................33
vii
viii Considering the Creation of a Domestic Intelligence Agency in the United States
Performance Metrics ..............................................................35
Problems or Controversies ...................................................... 38
Conclusion .........................................................................41
CHAPTER THREE
Canada ............................................................................ 43
Peter Chalk
Creation and Relevant History ................................................. 44
Mission and Critical Capabilities ...............................................45
Leadership and Human Capital .................................................51
Management and Process ........................................................52
Organizational Structure and Funding Patterns ..............................53
Key Relationships with Other Intelligence and Law Enforcement
Agencies ...................................................................... 54
The Canadian Intelligence Community .................................... 54
Law Enforcement ...............................................................55
Oversight ...........................................................................57
Performance Metrics ............................................................. 60
Problems or Controversies .......................................................61
Conclusion ........................................................................ 64
CHAPTER FOUR
France ..............................................................................65
Richard Warnes
Creation and Relevant History ..................................................65
Mission and Critical Capabilities ...............................................73
Leadership and Human Capital ................................................ 77
Management and Process ........................................................78
Organizational Structure and Funding Patterns ..............................82
Key Relationships with Other Intelligence and Law Enforcement
Agencies .......................................................................82
Oversight ...........................................................................85
Problems or Controversies ...................................................... 87
Conclusion ........................................................................ 90