Intelligence Archipelago: The Community's Struggle to Reform in the Globalized Era

318 Pages·2005·10.67 MB·English

Joint Military Intelligence College

G
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J THE INTELLIGENCE ARCHIPELAGO
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The Community’s Struggle

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to Reform
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in the Globalized Era
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AR AR Y INTELLIGE
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Melanie M. H. Gutjahr
PCN 55646 ISBN 1-932946-03-9 TMINLIIOTJARYIN1T9E6L2LIGENECGEECLOL
The Joint Military Intelligence College supports and encourages research
on intelligence issues that distills lessons and improves Intelligence
Community capabilities for policy-level and operational consumers
The Intelligence Archipelago: The Community’s Struggle to Reform
in the Globalized Era
This product has been reviewed by senior experts from academia, industry and government, and has
been approved for unrestricted distribution by the Office of Freedom of Information and Security Review,
Washington Headquarters Services. It is available to the public through the National Technical Information
Service (www.ntis.gov).
In this book, Melanie Gutjahr addresses the documentation surrounding the history of U.S. national
intelligence reform efforts, going back almost to the beginning of post-WWII intelligence. She examines
the question of whether the Intelligence Community appears capable of reshaping itself quickly and
effectively enough to cope with 21st century expressions of globalization. Finding a negative answer
to that question, she goes on to address the prospect that Congress may generate the wherewithal to
effect a transformation in intelligence matters by building on the Intelligence Reform Act of 2004.
[email protected], Editor and Director
Center for Strategic Intelligence Research
Library of Congress Control Number 2005924958
ISBN 1-932946-03-9
THE INTELLIGENCE ARCHIPELAGO
The Community’s Struggle to Reform
in the Globalized Era
Melanie M. H. Gutjahr
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May 2005
The views expressed in this book are those of the author
and do not reflect the official policy or position of the
Department of Defense or the U.S. Government
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CONTENTS
Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii
Commentaries. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix
Art Grant, Raytheon Company
Russell E. Travers, National CounterTerrorism Center
Review Essay . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xi
Failures, Fallacies and Fixes: Posturing Intelligence for the Challenges
of Globalization, by Russell E. Travers
Author’s Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xxv
1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
The Issue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Methodology and Limitations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Significance of Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
2. Fundamental Concepts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
What is Intelligence? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
What is Intelligence Reform? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
What is Oversight?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
What is Globalization?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
3. Past: Historical Perspective: Shapers of the Intelligence Community
During the Cold War (1945-1989). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
National Security Act of 1947 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
The Bipolar Environment. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Intelligence Community in the 20th Century. . . . . . . . . . . . . . . . . . . . . . . . 24
Cold War Intelligence Reform 1947-1989. . . . . . . . . . . . . . . . . . . . . . . . . . 27
Cold-War Era Reform Efforts in Retrospect . . . . . . . . . . . . . . . . . . . . . . . . 32
4. Recent Past: Stalled Reform (1990-2000) . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Post-Cold War Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Post-Cold War Intelligence Reform. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
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Post-Cold War Reform in Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Hart-Rudman Commission 1999-2001 . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
5. Present: Post 9/11 Strategies for Reform . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
9/11 Surprise? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
Joint Inquiry Commission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68
9/11 Commission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
Joint Inquiry and 9/11 Commission Recommendations . . . . . . . . . . . . . . . 74
Luminaries Respond to 9/11 Committee Recommendations . . . . . . . . . . . 80
Reform Effects of Presidential Executive Order . . . . . . . . . . . . . . . . . . . . . 85
6. Intelligence in the Post-9/11 World . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89
Globalization and the Intelligence Community . . . . . . . . . . . . . . . . . . . . . . 89
Information Revolution and the Intelligence Community . . . . . . . . . . . . . . 113
7. 21st Century: The Rocky Road Ahead . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129
A Changed Community Since 9/11? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129
Post-9/11 Community-Wide Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 134
The Way Ahead: The Networked Community . . . . . . . . . . . . . . . . . . . . . . . 146
Horizontal Integration and the IC. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 151
Congressional Oversight and the IC. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 158
8. Post 9/11 Intelligence Reform . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163
Protecting the Turf . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163
Passage of Intelligence Reform and Terrorism Prevention Act of 2004 . . . 167
Congressional Oversight . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 173
DNI and Community Relationships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 175
Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 177
9. Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 181
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Appendix A — National Security Act of 1947, as amended . . . . . . . . . . . . . . 187
Appendix B — Cold-War Intelligence Reform 1945-1989 . . . . . . . . . . . . . . . 191
Appendix C — Post Cold-War Intelligence Reform 1990-2000 . . . . . . . . . . . 205
Appendix D — Talking Heads Intelligence Reform . . . . . . . . . . . . . . . . . . . . 219
Appendix E — Post 9/11 Intelligence Reform Reports . . . . . . . . . . . . . . . . . . 227
Appendix F — GAO Human Capital Management Reference Tables . . . . . . 249
Appendix G — Intelligence Reform and Terrorism Prevention Act of 2004 . 251
Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 259
Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 263
About the Author . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 283
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ACKNOWLEDGMENTS
The author gratefully acknowledges the following individuals who made this
research project possible.
The senior leadership of the National Geospatial-Intelligence Agency who
selected me as the NGA participant in the FY2004 Intelligence Research Fellows
Program at the Center for Strategic Intelligence Research (CSIR) at the Joint Mil-
itary Intelligence College (JMIC), and colleagues in my assigned organization,
NGA/Enterprise directorate (Information Management), who promoted my
application.
Mr. Art Grant, LTC (U.S. Army, Ret.), former House Intelligence Committee
staff member and currently Vice President, National Intelligence, Space and
Geospatial Programs for the Raytheon Company; and Russ Travers, Deputy
Director, National CounterTerrorism Center, who reviewed the manuscript and
provided commentaries.
Dr. Russell Swenson, Director of the CSIR. His editorial comments and direc-
tion have been invaluable to the completion of this project.
The library research staffs at the Defense Intelligence Agency and the National
Geospatial-Intelligence Agency, who provided source assistance. An anonymous
NGA analyst, who provided map reconstruction assistance.
Lastly, the author would like to express a heartfelt appreciation to my family—
Hannah and Joshua Gutjahr—for their continued support and encouragement.
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