SURVEY OF THE FOREIGN DOCUMENTS DIVISION,OFFICE OF OPERATIONS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP62-01094R000100030023-0
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 76
• Document Creation Date: November 16, 2016
• Document Release Date: March 20, 2000
• Sequence Number: 23
• Publication Date: November 19, 1955
• Content Type: MF

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ER-7-6358
19 November 1955
MEMORANDUM FOR: Director of Central Intelligence
SUBJECT : Survey of the Foreign Documents Division, Office
of Operations
1. In conducting the survey of the Office of Operations we
are inspecting each division independently in view of the autonomous
character of the three divisions of this Office. The survey of the
Foreign Documents Division has been completed and is forwarded
herewith.
2. Copies of this survey have been provided to the DD/I and
the AD/Operations and Chief/FDD through the DD/I. It is suggested
that the Office be requested to comment on the survey of this
Division even though the inspection of the other two divisions
have not yet been completed.
Copy No. 1 - DCI
2 - DDCI
3 - DD/I
4 - AD/O via DD/I
5 - C/FDD via DD/I
6 - IG
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FOREIGN DOCUMENTS DIVISION
Page No.
I. PURPOSE AND SCOPE .................................... I
II . EECOMAMILTIONS . . . . . ......... . . . . . ... . . . . . . . ... . . . .. . 3
III. PRODUCTION AND COORDINATION RESPONSIBILITIES......... 10
A. Charter of the Division .......................... 10
1. Origin of FDD ................................ 10
2. National Security Council Intelligence
Directive No. 16.... ........ 0 .........
..... 11
3. Mission ...................................... 13
B. Coordination ..................................... 14
1. Advisory Committee on Foreign Language
Publications ............................... 14
2. Sub-committee on Exploitation of Foreign
Language Publications ...................... 16
3. Coordination of Translation Services......... 17
4. Procurement ....... ........................... 20
C. Priorities ....................................... 23
1. Policy Directives . ..... ...... 23
2. IAC Guidance .......... ....................... 24
3. Enforcement of Priorities .................... 24
4. Responsiveness to Priorities ................. 25
5. Requirements ................................. 27
D. Publications and Services ........................ 30
1. General..,..' ................................. 30
2. Exploitation Program. . 0 q * *. *. 0 0. *... * *.. * 0. a * 31
31 Editorial Practices .......................... 37
4. Quality and Character of Publications........ 40
E. Special Projects and A.ctivitie............ ....... 47
1STATS1PEC
. enera .... .............. 47
2. 48
3. The aranovsky Files ......................... 52
4. War Documents Project......... .... I .......... 53
5. Post Office Project ..... ..................... 56
6. Russian Textbook Project (POLEK) ............. 57
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Page No.
... ..... f ........ . . .. .... .
60
A.
Organization of FDD..............................
60
1.
General...... .... to ......... ...
60
2.
Office of the Division Chief .................
61
3.
Linguistic Support Staff .....................
62
4.
Regional and Functional Branches..........,..
65
B.
Management....... ... 0* ... to ................ ......
67
1. Administrative Decentralization*., ... to ......
67
2. Personnel ...,..or.....oo...o .............too.
68
3. Budget .......................................
70
C.
Career Service ....... ....? ........................
70
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a
I. PURPOSE AND SCOPE
A. This survey has been based on an inspection of the Foreign Documents
Division (FDD), of the Office of Operations and includes statements and
appraisals contributed by components in the DD/P, DD/I, and the IAC agencies.
The aim has been to determine: (1) the soundness of the Charter for FDD
as set forth in the National Security Council Intelligence Directive No. 16;
(2) the effectiveness of the Advisory Committee and the Sub-committee on
Foreign Language Publications in assisting the DCI in his coordination
responsibilities of CIA and the IAC translation services; (3) the value of
the foreign language document exploitation program and the quality of the
publications issued by FDD; (4) the importance of the special projects and
activities engaged in by FDD designed to meet the special linguistic services
placed on it by the Agency and the IAC; and (5) the responsiveness of the
Division to requirements. 25X1A stren B. FDD, as of 1 e elr ber 1955, had an authorize 25X1 A gth of =and
an actual strength of M; its budget for FY 1956 was Since the
end of World War II, FDD has contributed information of intelligence value,
especially that which has dealt with the USSR, the Satellites and the Far East.
During FY 1955 the number of documents exploited on these areas amounted to
98,336 or 50.6 of the total handled by FDD. At no time during the past
10 years has the principle of the FDD translating service as a service of common
concern for the intelligence community been seriously questioned. The demands
for information have increased until considerable strain has been put on the
personnel in FDD to meet their requirements as a service of common concern.
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C. The percentage of FDD manpower employed to service the DD/P during
FY 1955 amounted to 1.4.4, the DD/I amounted to 13.7 and the IAC to 4.0, while
67.9 per cent of its manpower produced the regular publications and issuances
of the Division. The low per cent for IAC agencies was attributed to the fact
that many of their specialized requests were sent to their own language units
to handle.
D. The findings in this survey indicate that FDD is performing its mission
to the general satisfaction of the users. There is no backlog of unfinished
translations in which deadline c re being ignored. There are large projects,
such as the exploitation of the files of Russian materials in some
8,000 separate dossiers, which proceed on an overtime basis with no specific
deadline set. There were a few isolated comments that deadlines were not being
met by FDD, but there were no general criticisms that special projects or
requests for language services took excessively long to complete.
E. There were some evidences in the intelligence community that the
procurement of materials was not the best. While subscriptions for foreign
language documents increased during FY 1955, the selection left much to be
desired. Personnel in FDD are convinced that only by CIA taking over the
publication procurement program from the Department of State can document
collection be improved. The officers appointed lack language competence,
are not acquainted with the book trade, and often do not have sufficient
bibliographic and intelligence experience. The assumption by CIA of the
publication procurement program was recommended by the Clark "Task Force
on Intelligence Activities." This shift in control of the program should
take place during FY 1956.
F. There is much room for improvement in FDD on the selection and
treatment of the materials available. The tendency is to attempt, to
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publish too much, to abstract information rather than to follow the harder
but more accurate procedure of translating verbatim and extracting information
for intelligence analysts. The program as presently conceived is too
inflexible, coverage is too general, and reportorial accuracy is too often
lacking whereby attribution, slant, scope, and emphasis are made abundantly
clear to the user. Also, FDD has drifted into publications which are library
functions, such as the issuing of Reference Aids. These should be discontinued
and transferred to OCR where the function belongs.
G. The location of FDD in the Office of Operations (00) is believed
to be the most satisfactory. While FDD is not a collector of information
STATSPEC in the same sense as is the
Contact Division, it does, nevertheless, select and publish unappraised raw
information. Since the mission of 00 is to disseminate to the intelligence
community unevaluated information, the language exploitation program of FDD
appears to fall correctly into the over-all services of common concern rendered
by the Office.
II. RECOMMENDATIONS
A. The Chief, FDD, should correct the deficiencies in the foreign
language exploitation program by performing the following:
1. Make more extensive use of quotations;
2. Emphasize reportorial accuracy whereby attribution,
slant, scope, and emphasis are made abundantly clear;
3. Assure that the foreign sources of information,
especially new sources, are evaluated as to past accuracy,
slant, bias, editorial viewpoints, government control, and
affiliations with political organizations, scientific groups,
or learned societies;
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4+. Take firm measures to delete from publications editorial
comment (unless clearly marked), appraisal of substance, analytical
comment, or conclusions;
5. Include in the documentation of materials exploited a
statement of the length, e.g., a three-column neV item, a five
page periodical article, or a book of 365 pages; and
6. It is further recommended that FDD be given the necessary
increase in manpower to implement this Recommendation. (Page 36)
B. The confusion existing between FDD and OCR in the publication of
Reference Aids and Research Aids should be corrected. Based on the survey
of FDD we would make the following recommendations. However, we would
suggest withholding implementation until we check those in our survey of
OCR in early 1956:
1. The Reference Aid series should be immediately discontinued
in FDD and the manpower used in the preparation of this publication
be more properly assigned to foreign language translation and exploitation;
2. The name Research Aid in OCR should be dropped and the title
Reference Aid be adopted;
3. Responsibility for meeting the Agency's and IAC's requirements
for reference material belongs to OCR and when projects require outside
language assistance, that Office should obtain it from FDD or elsewhere
and publish the results as a Reference Aid, giving proper credit where
appropriate. (Page 4+2)
C. The overlapping and confusion existing between FDD and OSI in the
publication of certain scientific and technical issuances should be corrected
as follows:
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1. The AD/SI in consultation with the ADO should rescind
the memorandum of agreement dated 5 October 1951, whereby OSI was
to assume the responsibility for translating, exploiting and publishing
unevaluated information on the Presidium of the Academy of Sciences,
USSR;
2. In all future studies of this nature, AD/SI should avail
himself of the professional linguistic services of FDD; and
3. When lengthy projects are organized in OSI requiring
material from open foreign language documents, careful terms of
reference should be prepared which will go far toward eliminating
possible errors in choices of materials and assuring that the
"magnitude of the effort" and the "range and character of interests"
are understood. (Page 44)
D. The FDD Branch Chiefs should ensure that their Section Chiefs
be alerted to the lack of substantive guidance they are giving the
translators and that they be instructed to devote their energies to:
1. Organizing the substantive work of the Section;
2. Assisting the translators and exploiters in selecting
the items for exploitation;
3. Keeping the language officers constantly aware of the
requirements leveled on the Section and deadlines to be met; and
4. Determ:Lning whether certain source material, because of
its significance, should be translated verbatim, extracted, or
abstracted. (Page 67)
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E. The Chief, FDD should accomplish the following:
1. The Branch Chief or their Deputies read critically and
appraise all of the material selected for exploitation by the
various Branches and initial each item, indicating that not only
the selection of the item is approved for publication, but the
treatment as well;
2. Assure that old, duplicatory and unimportant information
is removed and that the source material exploited be focused sharply
on stated needs;; and
3. Relieve the Branch Chiefs of secondary duties which may
interfere with performing this most important task. (Page 67)
F. The Chairman of the 00 Career Service Board should require
1. The Chief, FDD appoint a divisional Career Management
Staff composed of the Deputy Chief of the Division as chairman,
the Chief of the Administrative Staff as the permanent executive
secretary, and three Branch Chiefs to serve on the staff for a
twelve-month period on a rotating basis;
2. The Executive Secretary should:
a. Develop in connection with all personnel in the
Division long-range career plans in line with Agency and Office
regulations;
b. Compile minimum manpower and training requirements
for each type of language service rendered by FDD for the intelligence
community;
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c. Identify the individuals who will be needed to
satisfy these requirements;
d. Maintain a current roster of personnel who already
satisfy by training and experience FDD's requirements;
e. Prepare requirements for the recruitment of junior
personnel in consultation with the Chief of the JOT Program in the
Office of Training;
f. Prepare career plans for selected junior officers
in FDD in compliance with the Junior Career Development Program;
g. Submit findings, recommendations, and plans to the
FDD's Career Management Staff.
3. The Career Management Staff should consider all aspects of
individual career plans and manpower needs of the Division and submit
them along with recommended action to the Division Chief for his
review; and
4. The Chief, FDD should propose to the 00 Career Service Board
the individual career plans andji.mior officer career programs of
personnel under his jurisdiction and recommend action to be taken
within the framework of these programs with respect to assignment,
reassignment, training, testing, rotation and promotion. (Page 76)
G. The DD/I should refuse to accept the position of the Department of
State that the Publication Procurement Officers (PPO) Program should remain
under the administration of the Department. He should continue to negotiate
with persons in authority with the intent of placing under CIA the supervision
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and direction of the PPO Program. Following the transfer of this function
to CIA, the appointment of procurement officers should be done in cooperation
with the Department and details with respect to cover and integration must,
of necessity, always receive the approval of the Department of State. Funds
to cover this activity should be transferred to the Department as soon as
control has reverted. to CIA. (Page 23)
Ti. The ADO should request the Security 0jj Ato conduct a discreet
.gsigation of FDD's proprietary project, the
with the aim of determining the following:
1. The possible compromise of - as an Agency covert
project;
2. The soundness in bidding on and accepting translation
contracts from other Government agencies, especially if classified
documents are involved;
3. The wisdom of soliciting new business from outside
sources, thereby competing with private firms;25X1A
1f. The hazards involved in retaining in - personnel
known to be suspect;
-5i Thh+Aod of handling material transported between the
offices of M` and Agency buildings;
6. The sterility of records, financial statements, and handling
of money; and
7. The risks involved in personnel and telephone traffic
between the Agency and the project offices. (Page 52)
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I. The Linguistic Service provided by FDD should be extended to
the DD/P complex. Space should be provided preferably in "J" or "K"
Building for three linguists to assist the regional Divisions in performing
their intelligence and operational functions. The Chief, FDD should be
instructed to set up Linguist Service facilities as soon as feasible. (Page 64)
J. The proof-reading function should receive more attention so as to
assure professional accuracy for all publications and issuances. (Page 39)
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III. PRODUCTION AND COORDINATION RESPONSIBILITIES
A. Charter of the Division
1. Origin of FDD
a. The need for the fullest possible exploitation of
captured German and Japanese documents was realized by Government
intelligence components toward the close of World War II. The various
intelligence units in Army, Navy, and State set up their own translation
services designed to capitalize on these sources of information and
produce their awn publications based on translated foreign documents.
By 19+6 there were five organizations in the U. S. Government composed
of linguists who were meeting certain consumer demands.
b. The formation of the joint War-Navy Washington Documents
Center in December 19+5 was an effort to consolidate the linguistic
talent in the Government so as to eliminate duplication of effort and
publication and to meet the intelligence requirements of the growing
intelligence conmrunity. Late in 19+6 the Washington Documents Center
was transferred to the newly created Office of Operations (00) then a
part of the Central Intelligence Group. The name of the Documents
Center was changed to the Foreign Documents Division and, along with
00, was made a part of CIA in October 1947.
c. The early work of the Division consisted of selecting,
translating and summarizing information obtained from the more than
2,000,000 captured documents. This information was of strategic
intelligence value, especially that which dealt with the USSR.
Following the completion of the captured document exploitation program,
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the emphasis shifted to overt publications emanating from the USSR,
China, and the denied areas, and periodicals and press items from other
regions and countries in the world which shed light on these areas'
internal and foreign policies which might have some effect on U. S. national
interests*
d. At no time during the last decade has any intelligence
component in the Government seriously questioned the necessity of
having a translating service tied to the Government's intelligence effort.
In fact, a major problem has been to get the intelligence agencies in
the Government to reduce in size or eliminate their own translation
services and rely on CIA to provide this as a service of common concern.
Failing to accomplish this, the IAC agencies finally agreed to report
to CIA their translations commenced and completed for inclusion in a
publication known as the Consolidated Translation Survey. (See Page 18.)
The survey was first published in October 19+9 and has appeared monthly
ever since.
2. National Security Council Intelligence Directive No. 16.
a. Since the establishment of FDD in 00, this Division has
exploited and translated documents as a service for all CIA components.
The same service, although not as extensive, has been given to the IAC
agencies except for the routine translations of a highly specialized
nature which the various agencies do for themselves in support of their
own special needs. The formalization of CIA's relationships with the
IAC with respect to foreign language document exploitation was accomplished
with the issuance of the National Security Council Intelligence
Directive No. 16 on 7 March 1953.
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b. This NSCID, entitled "Foreign Language Publications,"
comprises the Agency's charter for the exploitation of foreign
language publications for intelligence purposes. The DCI is required:
(1) to insure the coordination of the procurement of foreign language
publications for intelligence purposes; (2) to prepare and disseminate
English language excerpts, summaries, abstracts, and compilations for
foreign language publications; (3) to develop and maintain indexes,
accession lists, and reference services regarding foreign language
publications of intelligence interest; (Lb) to insure the coordination
of translation services with similar activities maintained by the
intelligence agencies in accordance with their needs; (5) to provide
for the acquisition of foreign language publications in the possession
of other intelligence agencies; and (6) to establish an Advisory Committee
on Foreign Language Publications composed of IAC representatives and
other agencies of the Government to assist the DCI in implementing
this Directive.
c. The implementation of NSCID 16 was provided for by the
Agency Regulation No. 51-140 dated 23 April 1953. This Regulation
properly allocates the various functions to components in the Agency to
insure the adequate procurement, exploitation and referencing of foreign
language publications for intelligence purposes and provides for a
translation service for CIA.
d. The DDI was made responsible for designating the
chairman of the NSCID No. 16 Advisory Committee, which is responsible
for assisting the DCI in the implementation of that Directive within CIA
and among the intelligence agencies. The Assistant Directors for 00
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and OCR were given the responsibility for developing orderly methods
of carrying out all directives and regulations with respect to coordinating
among IAC members the acquisition, referencing and proper exploitation
of foreign language documents and publications.
3. Mission
a. This report is concerned mainly with appraising the
mission and functions of 00 with respect to its responsiveness to
IAC and Agency requirements in the field of foreign language document
exploitation. The value of foreign language exploitation as a source
of information in the intelligence program is generally recognized and
supported, as is the necessity for a document component to perform these
services centrally for the IAC.
b. The mission of FDD includes the following: (1) the
establishment of a translation and language service to support inform-
ational and operational needs of CIA, and to fulfill, when workload
permits, the specialized translation requests of the IAC; (2) the
coordination with other Government agencies and representatives of
foreign governments' foreign language document exploitation as directed
by the AD/70; (3) the continuous exploitation of foreign language
documents in accordance with the information and operational require-
ments of the offices and staffs of CIA and the IAC agencies; (4+) the
development of new sources, methods and techniques for such exploitation
in order to assure the best possible coverage of available source
material; and (5) the review of all available foreign language documents
to determine their applicability to existing intelligence needs.
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STATSPEC
c. 00 is believed to be the most satisfactory place in the
Agency in which to direct and supervise the foreign language exploitation
program. While FDD is not a collector of information in the same sense
as are the and Contact
Division, it does, nevertheless, select and publish unappraised raw
information. The main function of 00 is to make available to the entire
intelligence community unevaluated raw information for the use of research
analysts and operations officers.
d. In fulfilling this mission, FDD in FY 1955 allocated 67.9
per cent of its manpower to turning out its regular publications in
response to programs established by the IAC Sub-committee on the
Exploitation of Foreign Language Documents. The remaining 32.1 per cent
of its manpower was devoted to rendering specialized services as requested
by the Agency and the IAC. For example, special services for all DD/P
components in addition to the regular publications represented 14.4 of
FDD manpower, for the DD/I 13.7 and for IAC 4.0. The low figure for the
IAC is attributed to the fact that the various agencies have access to
small translation units of their own which take care of most of their
specialized requirements.
B. Coordination
1. Advisory Committee on Foreign Language Publications
a. Under the provisions of NSCID 16, an Advisory Committee on
Foreign Language Publications was established to assist the DCI in the
implementation of that Directive within CIA and among the intelligence
agencies. The Chairman of this Committee is an Agency representative
appointed by the DD/I, and the members from the IAC are appointed by
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their respective: heads. The Committee meets once a year in March.
It receives the annual reports of the various sub-committees and
gives general policy guidance with respect to the exploitation of
foreign language documents.
b. The charter of the Advisory Committee is set forth in
IAC-D 60/i and requires that the Committee: (1) advise CIA with
regard to the services performed as a primary responsibility under
NSCID-16 to meet IAC needs; (2) recommend to CIA priorities in the
abstracting of foreign language publications; (3) advise CIA regarding
the activities of the member agencies in the field of preparing
English excerpts, summaries, abstracts, compilations, and translations
of foreign language publications; (4) advise CIA regarding the
development and maintenance of indexes, accession lists and reference
services in respect to foreign language publications; and (5) advise
CIA regarding publications procurement needs and capabilities of the
member agencies in order that CIA can insure the coordination of
procurement and recommend to the IAC the priority for the procurement
of publications in emergency situations.
c. In performing this task, the Chairman of the Advisory
Committee on Foreign Language Publications established three sub-
committees which together encompass the general responsibilities
separately identified in NSCID-16. These sub-committees are:
(1) Exploitation; (2) Procurement; and (3) Reference. The Sub-
?committee on the Exploitation of Foreign Language Publications is
chaired by the Chief of FDD. The other two Sub-committees are located
in OCR and chaired by two representatives from that office. These
three sub-committees perform supporting services of common concern
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exploitation components. Representatives of other interested
departments and agencies are frequently invited to sit with these
sub-committees on matters which concern them.
d. This survey is principally concerned with the Exploitation
Sub-committee. The activities of the other two sub-committees will be
inspected at the time OCR is surveyed by the Inspector General.
2. Sub-commnittee on Exploitation of Foreign Language Publications
a. The Sub-committee on Exploitation of Foreign Language
Publications was established 1 May 1953 in order to determine and
recommend actions necessary for the development of a practical program
for the production of needed information from foreign language publications.
The Sub-committee is charged with the responsibility for:
(:L) Examining the requirements and priorities
of the intelligence agencies for information from foreign language
publications and the present activities of agencies engaged in exploiting
foreign language publications.
(2) Appraising present coordination of translation
services and recommending steps necessary to improve this activity.
(3) Reviewing periodically the exploitation program
and the coordination of translation services to determine their
effectiveness and recommend any variations or alterations required
by changing needs or conditions.
b. The Sub-committee meets every two weeks. The views of
all agencies represented are carefully considered and programs and
priorities reviewed in the light of needs. Careful consideration is
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also given to the scope of all existing exploitation facilities and
the adjustments FDD must make to meet the unsatisfied needs of the
consumers*
c. In the main, the Sub-committee has performed its
coordination functions well and has assisted FDD and the Agency in
discharging its responsibilities as defined in NSCID-16. By means of
the work done by the members of the Sub-committee, FDD has been able
to concentrate its manpower on the most profitable types of foreign
document exploitation. The periodic review of programs and publications
during FY 1955 has resulted in the elimination of exploitation activities
no longer necessary. One example of this was the elimination of the
India/Pakistan Program as an FDD exploitation effort because of the
number of publications in that field available in the English language.
Other programs were similarly either reduced or eliminated, thereby
releasing linguists for higher priority work such as that required on
USSR and Satellite matters.
d. Every major area and functional program in FDD has been
scheduled for Sub-committee review every six months. Requirements
and priorities are also carefully reviewed and recommendations made
to all interested intelligence agencies as to the type and quantity
of foreign document exploitation which may be needed during any fiscal
year.
3. Coordination of Translation Services
a. From the beginning of the Foreign Documents Division as
a component of CIA, efforts have been made by the Chief of the Division
to ensure that duplication in translation and exploitation services was
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reduced to a minimum. By 1949, definite progress had been made by
all interested Government agencies in effecting proper coordination
of their efforts. It was clearly recognized that CIA must assume
responsibility for over-all coordination centrally in order to meet
the requirements of the whole intelligence community.
b. As an outgrowth of this recognition of the Agency's
special position, all the IAC agencies cooperated by reporting to
FDD their completed translations and those already begun or planned.
This information was coordinated and compiled in booklet form known
as the Consolidated Translation Survey (CTS). The first issue was
published in October 1949 and the publication has appeared monthly
ever since. The Division also maintains a cumulative record--the
Document Exploitation File--of material published in the Survey.
c. Since its appearance, the CTS has gone through numerous
refinements. The publication now includes foreign language production
of other Government agencies, universities, private institutions and
industries, comrriercial translatitignterprises and of certain translation
and exploitation activities in Approximately 1,000 new
titles are added. to the file each month. From foreign language sources,
the file cross-references approximately 68,000 titles of translations
either completed or in process.
d. In order to make the publication more usable to customers,
representatives from FDD and from the Library Staff in OCR brought
about a more efficient coordination of listings in the survey by
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adopting the Library's numbering and file system. The annual
Progress Report for FY 1955 produced by FDD disclosed that more than
5,000 items were checke