Foreign Relations of the United States, 1961–1963, Volume XXV, Organization of Foreign Policy; Information Policy; United Nations; Scientific Matters

85. Briefing Paper by A. Russell Ash of the National Security Council Staff¹

Washington, January 13, 1961.

BRIEF FOR DISCUSSION WITH THE PRESIDENT

SUBJECT

• Sixth Report to the President by the President’s Board of Consultants on Foreign Intelligence Activities dated May 24, 1960 (Recommendation on “Organization and Management of CIA’s Clandestine Services”)

1. In memorandum of December 16, 1960, Mr. Gordon Gray requested the DCI to furnish a self-contained, current compilation of actions which have been taken to implement two Hull Board recommendations made in 1958 and 1960 (and subsequently approved by the President) which called for improved organization and management of CIA’s Clandestine Services. The DCI’s response is set forth in his memorandum dated 1/9/61 (attached).²

2. The first recommendation was made in a report of the Hull Board dated October 30, 1958. The Board noted that the CIA’s Plans Group was responsible for supervising, administering and reviewing the clandestine activities of CIA, including covert foreign intelligence activities and Cold War operations-and the Board questioned whether the Plans Group was capable of making objective appraisals of its own intelligence information and its own operations, when it is involved in Cold War activities which are the subject of its own reports. The Hull Board was concerned about this not only because of possible impacts on the programs of the CIA, but because of the influences which might be brought to bear on foreign policy determinations which, in large measure, may be based on CIA reporting. Accordingly, the Board proposed a review of the CIA’s Plans Group and that consideration be given to placing elsewhere in CIA the following responsibilities of the Plans Group: (1) the responsibility for reporting on and evaluating Political, Psychological and Para-Military operations, and (2) the responsibility for the formulation of intelligence estimates and recommendations upon which the plans for such operations are based.

3. In the second recommendation, made on 5/24/60, the Board noted that some changes had been made toward improving the organization and management of CIA’s Clandestine Services, but the Board felt that a way could be found to organize them along more simplified and efficient lines so as to avoid unnecessary duplication of effort and to achieve increased effectiveness.

4. The DCI’s Response: In his report dated 1/9/61, the DCI refers to corrective actions and indicates reasons why the responsibilities of the Plans Group are not placed elsewhere in CIA as suggested by the Board. Highlights of the DCI’s report include the following:

(1) The Hull Board may have felt that the Plans Group possessed a greater degree of autonomy and independence than actually existed.

(2) Although the Deputy DCI for Plans may take action for the DCI, operations under NSC 5412 are conducted only after the necessary policy guidance has been obtained from the 5412 Committee.

(3) Before Cold War (5412) activities are initiated, all available intelligence, including National Intelligence Estimates produced by the Intelligence Community, are taken into account-and while it is true that in covert operations a major source of information on the accomplishments of a project may be clandestine, CIA analyzes all available information from all sources to guard against subjectivity and self-serving reports.

(4) In 1959 the Deputy DCI for Plans reviewed the mission and organization of the Clandestine Services, in concert with a review by the Inspector General of CIA, and the DCI initiated a Program for Greater Efficiency within CIA as a whole.

(5) A number of organizational changes were made with respect to the Clandestine Services, including the appointment of a new Assistant Deputy DCI for Plans; an Operational Services grouping was created to combine and centralize certain elements.

(6) The Inspector General of CIA was made solely responsible for the comprehensive review of the activities and operations of Clandestine Services, reporting directly to the DCI.

(7) Operational Programs go to a Project Review Committee which reports directly to the DCI, and Mission Directives set forth objectives for the field stations.

(8) Action has been or is being taken with regard to such aspects of the Clandestine Services as coordination of activities abroad, delegation of more authority to the field, more emphasis on political action in underdeveloped areas, increased records mechanization, etc.

(9) The DCI has reaffirmed that continuing studies by the Deputy DCI for Plans of the organization, methods and procedures of the Clandestine Services be directed toward elimination of unnecessary duplication and the achievement of increased effectiveness—objectives which were set forth in the Hull Board’s recommendations. As a result, CIA has made such organizational changes as the establishment of a Division to direct and coordinate sensitive air operations, and the pending revision of functional statements of responsibilities of the Special Staffs.

(10) Other organizational steps have been taken to promote efficiency, as detailed in the DCI’s report.

(11) As previously indicated, the DCI feels that steps have been taken to meet the Hull Board’s concern over the problem of insuring a valid and unbiased intelligence base for operational planning purposes in the Clandestine Services. The DCI points to procedures calling for guidance from the Office of National Estimates throughout the planning cycle, and the use of current NIE’s in deriving contingencies against which clandestine activities are to be directed. The DCI refers to further independent checks on Psychological, Political and Para-Military projects in CIA, including review by components of CIA as a whole. The DCI also refers to the fact that such projects which have political import and involve substantial expenditures receive thorough review by State and by the 5412 Group before final approval by the DCI.

(12) Finally, the DCI concurs in the belief of the Deputy DCI for Plans that changes made in the past two years in the organization and procedures of the Clandestine Services have corrected deficiencies, and that the situation is now satisfactory. The DCI recognizes that future modifications may be desirable, and he asserts that the Deputy DCI for Plans will continue to study the organization and procedures of the Clandestine Services and take such action as is required to contribute toward greater efficiency.

5. Observation: The organizational changes and procedures which have been made, or are contemplated, in CIA’s Clandestine Services should continue to be periodically reassessed to insure that the objectives of the two Hull Board recommendations are being met in this critical area of Foreign Intelligence activities. Whether or not there is to be a continuation of the kind of scrutiny which has heretofore been afforded these matters by the President’s Board of Consultants on Foreign Intelligence Activities, it would seem desirable that the DCI be asked by the President at this time to maintain a continuing review of CIA’s Clandestine Services.

6. Accordingly, it is recommended that the President be briefed on the highlights of the DCI’s memorandum dated 1/9/61, and that the President approve an action along the following lines:

The President (a) noted the memorandum dated January 9, 1961 to the Special Assistant to the President for National Security Affairs from the Director of Central Intelligence, on the status of implementation of recommendations made by the President’s Board of Consultants on Foreign Intelligence Activities on October 30, 1958, and May 24, 1960, concerning the CIA’s Plans Group and the organization and management of CIA’s Clandestine Services, and (b) requested that the Director of Central Intelligence continue to review the action being taken with a view to meeting the objectives of the recommendations, and as the basis for the submission of a further progress report at an appropriate time.

1. Source: Eisenhower Library, Records of the Special Assistant for National Security Affairs. Secret.
2. Document 83.