SOME PROBLEMS IN THE COORDINATION OF MEMORANDA

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP79R00967A001200010018-9
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 4
• Document Creation Date: December 16, 2016
• Document Release Date: June 27, 2005
• Sequence Number: 18
• Publication Date: October 27, 1967
• Content Type: MF

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SECFIET
27 October 1.967
MEMORANDUM FOR: Din
FLOM: CAS
SUBJECT: Some Problems in the Coordinstion of Memoranda
1. It has been the practice for Some time to attath to intelli-
gence memoranda prepared for circulation outside the Agency a footnote
indicating 'whether they bare been prepared entirely within CIA, indica-
ting the Agency element principally reoponsible? and naming those other
elements that participated or gave their concurrence. The origin of
this practice was a request from Genera Mvontell Taylor that ho not be
given papers without clear indication of their origin. In practice,
the sourcing footnote hes provided e. means of assuring and certifying
coordination of memoranda within the Agency.
2. Py common consent responsibility for coordination of memoranda
has been left to the people engaged in their preparation. In CNB re-
sponsibility for giving concurrence *bon consulted has been left to the
Staff Chiefs, vbv have the authority to delegate that responeibility to
'Alton members. Notification is given in writing to the Cla's office of
all concurrences requested and of the action taken, but nothing further
is required unless there is &problem that cannot be resolved at the ?
working level. Other offices follow similar procedures. It has been the
general practice to coordinate and ask concurrence only of those AeWINT
elements whose consent is recorded as pertinent to the matter at hand.
CE, for example? does not as =NT antaummao on a memorandum on a
political or economic subject, nor does it son that of OCZ or OE R on e
subject deemed largely military. Other offices pUblishvithout consulting
OUR when they write on matters or 0 current or technioal nature, for
example, on which it le considered tbet ONSin view are not pertinent*
3. In general those procedures have worked very vell. They
depend for their effectiveness on the excretes at geoid judgment by the
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prelysts with respect to the interests, resources, and claims to be
consulted of the many elements in the AaanCY /Monad in preparing
finished intelligence. It also depenas on the manner in which thaY
interpret and represent the viess at their cm offices in giving or
withholding concurrence in memoranda prepared by others.
4. The present system depends on the emumption that analysts,
checked by their aupervisore and officio chiefs, have the authority to
decide which of the various Agency components should be consulted and
which not, In the past when armsomnda have been given external eircu-
lation without OMB concurrence and when UM has believed that it should
have been consulted, the matter has been broui to the attention of
the Office chief concerned. The diecuselons which followed have demonm
strated that they have a mutual interest in seeing that the system
works. Problems usually arise When an mallet is pressed for time
and hopes to avoid or shortcut consultation which he fears will delay
publication or chew his 12C21101`1112dMis His supervisor or Office chief
is usually more concerned than he about maintaining good relations
with other Agency components.
5. There are, however, more difficult problems than that of seeing
that consultation actually takes place. First, there is the problem of
whet to do in the case of ? clear divergence of vieva on a matter of
judgment. It is essential, of *nurse, that thajigeney speak to the
outside world with a single voice. There ie a general willineness to
tolerate treatments of subjects that would not be the preference of
the party asked to give concurrence, so long as basic judgments are in
agreement. Most analysts are willing to go quite far in accommodating
other exponents of the Agency in araer to get *paper that con be put
out with all proper concurrences. 2 do not know of a paper which loss
been withheld from publication became of thowithholdingleoncurrence.
There was one case, of course, in 'bleb found itself unable to
subscribe to the formulation or the problem end the methodology employed.
Because this was a paper written in response to a special request, it
was agreed that in this case Oars name could simply be left out of the
sourcing footnote. In a cone of substantive difference such a solution
would be unlikely to satisfy. I suggest that each ease should be de-
cided an its merits and that in nOnt instances ? ealution will be
found by working the alternative arguments into the text or appendix*
a footnote in which they are spelled out.
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6. Another kind of prObles allies ever the (pestles at what
offices shou3A be consulted m sew given paper, In *oat cases the
cholas is obvious. In sone it can be *ten difficult ard delicate
eurtter. I de not believe there is any rule of thumb, nor to I be.
have that a rule can be formulated,boveverfcamplicated, that will
cover all cases. Each component at the Agency has an devious claim
to be consulted on a ymer that cover. a field in which it has special
cemetence and responsibility. oar o rights ars perhaps mere diffi-
cult to define than those of $oy other Aeenfee emepecent. It can claim
the right to be consulted on any broad and *portent matter on which
estimates are and.. it 'there do you draw the line between these
and subjecte that are essential.ly specific, current, or techuicelt
re Win the only practical rule is for the analysts, =pier the
direction
of their supervisory* to be bold retponsible to the claims
of other Offices and. comments of the Ageney. Saab miniedietent
noted should lead to dialectal= and, hopefully* correetive?seetion.
It should be leapt in mind that there hoe in practice been very few
cases where one component hes felt that it bud a valid =implant
feminist another.
T. There remains one area in 'bleb 02131 has a clear and easily
eateblished claim to being 403sulted end listened to. I refer to
momoranda which deal with (tette:Mee node In National Intelligence
'estimates* or which WV due to be treated in forthcoming Rift. Your
treatment of this whole bums in your lessorandem to the Director
011 of the Office of Strategic Dosexrch (rtt. CEA Itmeorsudtms an the
dated 10 October 1967) sets forth Ws position on
this natter. I believe it should be scut to ell compcnents of the
Agelm that produce finithed intelligence.
B. 2 have discused the subject or this memorandum with a
variety of people whose judgment I value and have found neral agree
=ant with the outline of the present vat= ay set forth above sea
lath the principles that crealeexte ehould be held 7.'17,00014? for declaim
who should be caked for cencurrence end seeing that it is done, mad
that the astern is best policed by berries aggrieved parties take their
case to the superiors of the analyst with those decieimes they dis-
agree. Co proposal for e in the system is being considered
by. the =11. It is to footnote 1110=oranda published for circulatien
cataide the Agency simply with the statement that they teme be=
prepared entirely within the Jkgeacy, or in collaboretica with BOW
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other agency When that is the ease. Ohio would deprive the outside
reader of nothings insuoneh as be is unlikely to know one CIA ensimnent
the abhor. It vem334 hove the advantage of avoiding the altuetioa
7-? in which an ONE Special ligonorazdom ea, 0111 coneurrence could be reed
an a modification ar en estimate made in cam =I or 83134 Thome copies
of the memorandum circulated vithin the Itgenevs homers road carry
a slip indicating the office at prepenticas other offices participating
and offices conetubring. Mlle would permit the Present Wit, se of
policing the concurrence system to =Mane u at present.) I recommend
that vi support the =I in this provo5s/4,
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