SURVEY OF NIE DISTRIBUTION

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP79R00971A000400020002-9
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 12
• Document Creation Date: December 16, 2016
• Document Release Date: April 6, 2005
• Sequence Number: 2
• Publication Date: August 1, 1960
• Content Type: REPORT

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S E C O N D D R A F T
Survey of NIE Distribution
1 August 1960
ace
Preface
1. Pursuant to USIB action (USIB-M-34) the Office of National
Estimates and the Office of Central. Reference, CIA, have been jointly
undertaking a survey of the distribution of NIE's and SNIE's. During
the last few years there has been noted a steady increase in the
number of NIE's published and distributed. It was the purpose of
this survey, as indicated in the action cited, to find out where
these estimates go and who in reading them.
2. Four years ago the Board of National Estimates prepared
an extensive "Survey of FIE Dissemination and Use" (IAC-D-94/1),
an important part of which was a series of interviews with a repre-
sentative sample of final consumers or end-users to ascertain what
use they actuablly made of NIE's. Upon the completion of that
survey it was recommended that "each member of the:IAC examine its
pattern of NIE distribution with the end of continuing to improve
the usefulness of NIE's to the policy, planning and executive
branches of his agency" and that each IAC agency "undertake to
brief new key officers (NIB consumers) within its department on the
nature of the NIE and the means at the disposal of these officials
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for initiating NIE's responsive to specific intelligence problems
they'may have." Certain limitations on NIE use were also noted
for improvement.
3. The present sutdy is considerably more limited in its
scope and purpose. It was primarily concerned with investigating
the nature of and causes for the apparent large increase in NIE
distribution. There were two aspects to this study: (a) a
questionnaire enclosed in selected NIE's published over an extended
period for the purpose of obtaining certain detailed information
regarding the readership of NIE's and the uses made of them and
(b) an inquiry directed to the distribution offices of the USIB
Agencies* for the purpose of determining how the distribution of
NIE's is controlled.
4. Questionnaires were enclosed in seven NIE's of varied
subject-matter which were published in the period July 1959 to
February 1960. The response to this inquiry was very slow and
widelyscattered. By means of several reminders by letter and
telephone the number of returns increased somewhat. By the time
this phase of the inquiry was closed (about 1 June 1960), there
had been received 1037 replies from 636 individual respondents.
Inquiry was made of all of the TJSIB agencies with the exception
of 0S0, which receives only 2 copies of each NIE. Most of the
data for this report, however, is based on the replies from the
major USIB recipients (S'ttte, JCS, Army, Navy, Air, and 'VIA)
who receive and distribute 93% of the NIE's sent initisllly to
USIB members and 84% of the total initial distribution to all
recipients.
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5. The second phase of the inquiry regarding the control of
distribution of NIE's was first conceived as an undertaking to be
accomplished by.C-IA liaison officers visiting, through appropriate
channels, the various recipient agencies. After surveying one agency
in this way, it was concluded that the method was too time-consuming
and unproductive. It was therefore decided to place the responsibility.
for making the survey upon the shoulders of the chief distribution
officer in each of the USIB agencies. Their complete cooperation
was given and full responses to the inquiry were received. Since
the non-USIB recipients represented such a very small part of the
total distribution and could very largely be identified by title,
they were not included in this phase of the survey.
See footnote, page 2
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. The Distribution of NIEts.*
There has been a gradual but steady increase in the number of
NIE's printed and distributed. During the seven-year period from
1954 to 1960 the basic number of printed copies of each NIE increased
from 225 to 450 or 100%.## The number of recipients in the initial
distribution list (exclusive of reserve stock) increase from 189
in 1954 to 372 in 1960 or 97%. The reserve stock was increased sub-
stantially during this period (from 36 to 78, or 117%) to provide
for greater flexibility in meeting supplemental demands.
The rate of increase in NIE's distributed appears to have
levelled off at least for the time being. The increase from 1959
to 1960 has been less than 4% compared with 19% from 1958 to 1959
and 12% from 1957 to 1958. It is possible that this low rate for
the past year may reflect the added attention given to the control
of distributions as a result of this inquiry. The only previously
For convenience in presentation, the detailed analysis is limited
to NIE's of SECRET classification. The same number of TOP SECRET
NIE's is printed and the initial distribution is identical with
that for SECRET NIE's except that 25 less are distributed within
CIA. The distribution of SNIE's is 27 less than for NIE's and
only 410 are printed.
This basic figure is used for purposes of comparison because it
is the normal base which provides for the standard initial dis-
tribution plus the requisite number of copies for reserve stock.
The actual press run in most cases may be increased by 15 to 75
copies to meet the fluctuating demand of DDP within CIA. In very
exceptional cases this increase has been considerably greater.
The community demand for copies in the 11 series (USSR) has made
it necessary to print an additional 100 copies in this series.
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comparable rate was less than 5% in 1956-1957, immediately following
the previous survey, following two years in each of which the increase
had been 16%. All of the respondents to the present inquiry stated
that the numbers of NIE's received was adequate. One respondent
has since reviewed his distribution list and reduced it from 50 to
43 or 14%.
The distribution of a given NIE may vary appreciably from the
standard list depending upon the subject and the degree of community
interest. However, the standard distribution list, as given below,
provides a good measure of the initial distribution pattern of most
NIE` s.
One respondent noted that additional copies are required for certain
geographic areas and for the 11 series. These are provided from the
reserve stock.
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Standard Distribution List for NIE's
(As of 13 July 1960)
White House 4
Secretary of State 1
Secretary of Treasury 1
Secretary of Defense 2
00DM 3
NSC (Members, Advisors, Observers, 15
NSC Planning Board)
OCB 2
ICA 7
Nat. Indications Center 1
Nat, War College I
CIA 112
State 35
Army 65
Navy 32
Air Force 43
JCS 25
NSA` 8
AEC 4
FBI 2
0S0 2
USIB Secretariat 7
TOTAL 450
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2, Analysis of the Reasons for the Increase in the Number of
NIE's Distributed
An important conclusion of the 1956 Survey of NIE distri-
bution was to the effect that "some NIE's do not reach all of the
departmental policy or planning heads or other key officials who
might find them useful." In some instances it was noted that "the
criteria for distribution appeared to be overly restrictive." In
the current study, the major TJSIB recipients were asked to state
the reasons for the increase in the number of NIE's being used by
their agencies. The replies reflect a growing interest in and use
of NIE's by both intelligence users and planners -- and many of
these at the higher levels of responsibility. It cannot be de-
termined whether this is a conscious and directed result of agency
implementation of the 1956 recommendation to make NIE's and their
use more widely understood. It is apparent from the responses,
however, that the elements of this increase in numbers includes
the following:
(a) A natural expansion of readership as the utility
and significance of National Intelligence Estimates have
become more firmly established throughout the government.
(b) An increase in the size, responsibility, and
complexity of agencies served by NIE's.
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(c) The growing number of senior officials, both
military and civilian, who require NIE's in carrying out
their responsibilities.
(d) An increasing number of users in the intelli-
gence community itself, including those who themselves work
on or contribute to NTE'e and those who use NIE's as back-
ground for their own intelligence issuances..
(e) The addition of new readers overseas, including
Political Advisors (SHAPE, SACLANT, ANCPAC) and Ambassadors,
Air Force commanders and Staff planners, and Unified and
Specified Commanders.
(f) Various agency reorganizations including changes
in physical locations of offices.
(g) The succession of world crises and events (Suez,
Lebanon, Berlin, developments in space, etc.), which have
generated an increased interest in national intelligence on
the part of commanders and planners.
(h) A general increase in the number of people in
the government concerned with the communist threat throughput
the world, with the developments in modern technological
warfare and with the capabilities and intentions of the
Soviet Bloc.
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(i) The establishment or expansion of reference and
library facilities in the several agencies and the enlarge-
nent of the Records Center allotment in CIA.
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3. Control of NIE Distribution and Readership
Although NIE's do not carry security controls which are not
generally applicable to other documents of the same classification,
it was found that all six major USIB recipients do in fact apply
special controls of various kinds in the handling of NIE's. The
replies reveal that the distribution of NIE's is handled with great
care and that access is limited to those persons having a genuine
need-to-know. The special controls used include the following:
(a) Distribution on a "hand-carry" basis direct to
-users rather than in a routine classified distribution.
(b) Central storage of all NIE's izi` a master file.
(c) Individual examination of each new NIE to deter-
mine distribution on a need-to-know basis.
(d) Maintenance of continuous receipt controls.
(e) Tickler files in overseas commands in order to
comple with one-year restriction. -
(f)
officials.
Determination of distribution by very senior
(g)
The addition of special markings prohibiting
(h)
Frequent review of distribution lists and polities.
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Although all of these controls are not exercised uniformly
by all of the agencies, they are indicative of the special attention
given to the security of 'NIE's. The onward dissemination of NIE's
beyond the initial list and the release of NIE's from libraries or
rather repositories are similarly controlled.
With one exception, all of the agenciew queries were of the
opinion that the present controls were adequate and that no special
controls should be added. The opinion was expressed that such con-
trols might prove a hindrance and might serve to prevent valid
recipients from receiving NIE's. It was also indicated that con-
fusion might result because of the differences in the procedures
of the military and civilain agencies.
The single dissent from this view was to the effect that
special controls which are clearly understood are extremely helpful
to the disseminator. He cited the recent USIB decision not to re-
lease NIE's to contractors. Speeificially, however, he stated that
the present controls presented in DCID 11/2 (currently being revised)
are not clearly understood or widely used. This reply was apparently
not addressed specifically to the question, however, which was con-
cerned with the application of uniform spJaial controls for the
handling and distribution of all NIE's.as distinct from other docu-
ments of the same classification. It is assumed that any special
limitations on the distribution of NIE's generally or of specific
NIE's individually will continue to be applied when required.
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4. "Policy" Users and "Intelligence" Users
In order to determine in some measure the extent to which the
increase in NIE's was due to a greater demand by policy makers or
planners ("end-users") as distinguished from members of the intelli-
gence community who themselves were producing intelligence, the
major USIB recipients were asked to distinguish between these cate-
gories as far as possible. The line between such users is not always
clear-cut and may vary from estimate to estimate. However, the rough
figures obtained from the six major consumers reveal rather definitely
that the increase in intelligence users from 1954 to 1960 was almost
2- times as xeat as for policy users served by those agencies. The
increase in intelligence users was on the order of 131% and of policy
users about 55%.
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