LETTER TO LT. GENERAL JOSEPH F. CARROLL FROM MARSHALL S. CARTER

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80B01676R000500170031-7
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 12
• Document Creation Date: December 15, 2016
• Document Release Date: August 22, 2003
• Sequence Number: 31
• Publication Date: December 30, 1964
• Content Type: LETTER

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CENTRAL IN-, ELLIGENCE AGENCY
WASHINGTON 25, O. C.
OFFICE OF DEPUTY DIRECTOR OF CENTRAL INTELLIGENCE
Lt. General Joseph F. Carroll., USAF
Director
Defense Intelligence Agency
Washington, D. C.
Dear Joe:
30 December 1964
This responds to your letter of 2 December, and to our
subsequent conversations. I have now reviewed in detail the evolution
reflecting, of course, on our
1962 to date
,
of NPIC from December
o exchange of views in the spring of 1963 and noting with particular inter
est your recent exchange of correspondence with NPIC and the account
of the. meeting between you and Lundahl.
In April 1963 you concurred in the principles set forth in the DC1'/
among
t
S
a~ y .,
ecre
memo to the
other things, established an organization into which both CIA and DIA
would place pi's to perform the national exploitation. It was recognized
at that time that these Pi's would be under the functional control of the
Director, NPIC, but remain administratively responsible to their parent
organizations, and in your memo you took cognizance of the fact that dif-
ferent administrative arrangements would have to be made. With your
help and the corralling of the various military service forces into a
of a so-called perman nt hoc"
single contingent we were able to progress
manner of performing PI readout to the establishment organization and have operated in this manner, with relatively minor
changes, ever since. The results, I think, speak for themselves.
I firmly share your view of the current and, indeed, continuing
national dependence upon NPIC as an agency of common concern. Any
change in current practices then is a matter of management judgment
,is to just what course will maintain at maximum level the capabilities
of NPIC.
DIA review(s) completed
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Before turning to some of the specific factors involved in this
decision, I want to touch briefly on a point which you mentioned in
your letter and which has arisen on other occasions
and head of they CIA. Cerny
Art Lundahl's dual role as Director, NPIC, adepartmental photographic intelligence effort. The CIA departmental
effort is a drop in the bucket compared to the holdings of the military
services and DIA and is, for reasons of economy nd frefficiency,
om which we
i
It
housed wholly within I I
over and
na and has
,
have drawn the PI Is to work in the national are
above this, supported in many ways the national effort in times of
crisis and severe strain. It serves alsketsand atta ta dyoungtprofes-
recruitment base to go out into the max
sion.als to this type of work. As you well know, the Agency has no
built-in supply of Pi's and must literally recruit people out of the
universities and companies and train them for this type of work. Now
it made sense to me two years ago and it continues to today to have
Lundahl serve as head of both. the national center and the CIA effort
since by so doing he is:
1. Not put in the awkward position of competing with another
element of CIA to attract and recruit PI's.
2. In control of the administrative base from which PI's
ire assigned to the national center.
3. More closely able to monitor the efforts of both and
ensure, at least between these two elements, as little duplica-
tion as possible.
His orders are today, as they have always been, to provide first and
foremost for the national effort and I feel he has carried out those
instructions. In my judgment, and in his, his dual role has been in
the past and will continue to be in the future a positive asset to the
national exploitation program.
I have gone into the rotation policy practiced by CIA in depth
and the following points stand out clearest to me:
L. Rotation as practiced by CIA basically involves the
cycling of PI's from the north end of the third floor of
o the south end no more frequently than every
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two years. These men n.ver really leave their professional
pursuits or, in many cases, their specialized fields, and
therefore I simply cannot view with any real concern the nega-
tive effects this policy might have on the general competence
or continuity of the Agency contribution to the photo analysis
effort of the Center.
Z. A mix of experience between jobs on the national produc-e tion line and a departmental element, such as the C etac on lnt
which is working primarily on strategic level problems, provides variety and stimulation for the PI but diversifies his
experience and, over the long run, makes him a better and more
acute viewer of the products over which he must labor.
3. The high degree of expertise and knowledge of this group,
was developed over the period
to which you refer in your letter, not only in the rotation
of time during which they participated, Y rmed national policy, but indeed for part of the period r encoe gain d by thenork
on an ad hoc basis. The variety of expe
has proven to be an asset rather than a liability.
4. So-called off-the-job training is a frequent and recurring
m-1-must in this business and cannot r>e done at the expense of the
national effort. Pi's should be trained while serving in their
parent organization so as not to detract from the productive
capacity of the national. activity.
5. We must prepare not simply for today but for the long
run and by developing and equipping, as rapidly as possible,
this CIA detachment to meet both national and departmental
a lookdfo core and long-term
objectives, we will have created
ward to varying and
can
,.Asset, the members of which
stimulating experiences throughout their careers.
The above factors, coupled with the experience of Lundahl, his
most of whom have worked
senior managers and indeed. his senior Pi's,
between 10 and 2.0 years in the business in a wide variety of military
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. 7 T
and civilian organizations, lead me to believe NPIC is embarked on
a prudent course. I would differ with the view expressed in paragraph
:; of your letter as to the fact that the irreplaceable degree of exper-
tise and knowledge developed by the present PI staff has been the
primary reason why NPIC has been so effective. Instead, I would say
that while this has been a most important reason, other equally
tniportant factors have been the concepts of organizing and operating
zL mass, rapid response, team-oriented production effort developed
by the management of NPIC and the literal revolution they have
brought about in the methodology of performing P1 work, the integra-
tion of collateral data, on-line computer-driven mensuration tech-
niques, and the host of other innovations which they have brought to
the business. I think this management has proved itself not just
abreast, but ahead of the times and their reasoning on the particular
issue in point here convinces me to go along with them. I appreciate
and most certainly share your concern over any development at NPIC
which would appear on the surface to militate against maximum and
continuing high-quality production, but I see no danger of this in a
continuation of the current rotation policy.
You have my assurance that maintenance of the integrity and
high standards of NPIC will be protected, continued, and improved.
Faithfully yours,
M trshall S. Cart
A
Lieutenant Genera
Deputy Director
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Lt. Gen6,ral Joseph F. Carroll, USAF
Director
Defense Iltelligence Agency
Washingto D.C.
December 1962 to
r.?e t ter- of 2,
eviev in detail the evolution of NPIC from
date, reflecting, of course, on our exchange
of views in the s
interest your rece
the account of the
ing of 1963 and noting with particular
t exchange of correspondence with NPIC and
eting between you and Lundahl.
In April 1963 yo concurred' in the
principles set forth in the DCI's memo to the Secretary of
Defense of 6 December 1 2 which, among other things, established
organization into ich both CIA and DIA would place PIs
to perform the national ex oitation. It was recognized at that
time that these PIs would b under the functional control of
the Director, NPIC, but rema administratively responsible to
their parent organizations, a in your memo you took cognizance
of the fact that different admi istrative arrangements would
have to be made. With your hel and the corralling of the
various military service forces \ operated a single contingent we
were able to progress from the so- lled "ad hoc" manner of
performing PI readout to the establ hment of a a` permanent
I organization and have operated this manner, with relatively
minor changes, ever since. The resul , I think, speak for
m~+ariall~r a1lhAnr? - ,* g3~tf LY#.'t v`~ c?tpab :iiti
`to guarantee-?:::
of that- oxganizatiott
.,. !"` I firmly share your view of the current ad
national dependence upon NPIC as an agency of c
indeed, continuing
mon concern.
Any change in current practices then is a matter`pf management
judgment as to just what course will maintain at maximum level
the capabilities of NPIC. '_.
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B
in this
mentione
and this
and head
ore turning to some of the specific factors involved
decision I want to touch briefly on a point which you
in your letter and which has arisen on other occasions
pncerns Art Lundahl's dual role as Director, NPIC,
tithe CIA departmental photographic intelligence
effort. Th
compared to
is, for reaso
s to work in
of economy and efficiency, housed wholly within
is the element from which we have drawn the
e national arena and has, over and above this,
Lways the national effort in times of crisis
supported in many
and severe strain.
recruitment base to
professionals to thi
Agency has no built-i
It serves also as the CIA administrative
o out into the market and attract young
type of work. As you well know the
supply of PIs and must literally recruit
;pities and companies and train them
people out of the univ
for this type of work.
and it continues to toda;
both the national center
he is:
to have Lundahl serve as head of
d the CIA effort since by so doing
1. Not put in the wkward position of competing
with another element of A to attract and recruit PIs.
2. In control of the dministrative base from which
PIs are assigned to the nati al center.
3. More closely able to
both and insure, at least betwe
as little duplication as possibl
His orders are today, as they have alwa
and foremost for the national effort an
out those instructions. In my judgment,
role has been in the past and will contin
been, to provide first
I feel he has carried
nd in his, his dual
to be in the future
n program.
a positive asset to the national exploitat
I have gone into the rotation policy pr ticed by CIA in
depth and the following points stand out clearest to me:
1. Rotation as practiced by CIA basi ally involves
the c clip of PIs from the north end of t third floor
of to the south end no more fr'uently than
every two years. These men never really leae their
professional pursuits or, in many cases, thei specialized
fields, and therefore I simply cannot view witT4 any real
concern the negative effects this policy mightiave on
the general competence or continuity of the Agency con-
tribution to the photo analysis effort of the Center.
CIA departmental effort is a drop in the bucket
e holdings of the military services and DIA and
ow it made sense to me two years ago
2
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2. A mix of experience between jobs on the national
production line and a departmental element, such as the
CIA detachment which is working primarily on strategic
level roblems, not only provides variety and stimulation
for th PI but diversifies his experience and, over the
long ru , makes him a better and more acute viewer of
the pro cts over which he must labor.
3. T
this group
over the pe
not only in
high degree of expertise and knowledge of
to which you refer in your letter, was developed
od of time during which they participated,
e rotation policy, but indeed for part of
the period pe
A,formed national work on an ad hoc basis.
The variety of
xperience gained by them has proven to
r than a liability.
4. So-called f f the job training is a frequent
and recurring must this business and cannot be done
at the expense of th national effort. PIs should be
trained while serving their parent organization so as
not to detract from the oductive capacity of the
national activity.
5. We must prepare not ply for today but for
the long run and by developing d equipping, as rapidly
as possible, this CIA detachment o meet both national
and departmental objectives, we wi have created a hard
core and long term asset, the member of which can look
forward to varying and stimulating exp Fences throughout
their careers.
The above factors, coupled with the experienc`oof Lundahl,
his senior managers and indeed his senior PIs, most of whom
have worked between 10 and 20 years in the business in ; wide
variety of military and civilian organizations, lead me tam
believe NPIC is embarked on a prudent course. I would differs.,,
with the view expressed in paragraph 3 of your letter as to
the fact that the irreplaceable degree of expertise and knowledge
developed by the present PI staff has been the primary reason
why NPIC has been so effective. Instead I would say that while
this has been a most important reason, other equally important
factors have been the concepts of organizing and operating
a mass, rapid response, team-oriented production effort developed
by the management of NPIC and the literal revolution they have
brought about in the methodology of performing PI work, the
integration of collateral data, on-line computer-driven
mensuration techniques, and the host of other innovations
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I.W
which they have brought to the business. I think this manage-
ment h proved itself not just abreast, but ahead of the times
and the reasoning on the particular issue in point here
convince me to go along with them. I appreciate and most
certainly share your concern over any development at NPIC which
would appe r on the surface to militate against maximum and
continuing igh-quality production, but I see no danger of
this in a co t:inuation of the current rotation policy.
You have assurance that maintenance of the integrity
and high standar s of NPIC will be protected, continued, and
improved.
Faithfully yours,
Marshall S. Carter
Lieutenant General, USA
Deputy Director
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DEFENSE INTELLIGENCE AGENCY
WASHINGTON, D. C. 20301
S-675/XX
Lt General Marshall S. Carter
Deputy Director
Central Intelligence Agency
Washington, D. C.
I have been advised of the adoption by CIA of a policy calling for
short-term rotation of photo :interpreters assigned to the National
Photographic Interpretation Center (C). As recently modified, this policy
prescribes the rotation every two years of CIA personnel assigned to the
Photo Analysis Group (PAG) with a transfer of approximately one-third of
the force every eight months. Previously, as I was most surprised to
learn, the policy had called for the annual rotation of photo interpreters
with transfer of one-third of the force every four months. The first
personnel changes under that policy were accomplished six months ago.
As you may recall as a result of an exchange of letters between the
Secretary of Defense and the 1)CI, you and I agreed to modify personnel
assignment policies governing our participation in the NPIC. Our common
objective was to formulate policies which would provide for the stability
of personnel assignments, and maintain and enhance the timeliness and
continuity of the NPIC response. Pursuant to this objective, I directed
that in the selection and assignment of DIA personnel to NPIC the most
exacting professional standards be invoked to insure the acquisition of
the best qualified personnel, both military and civilian. While it is
granted that the military personnel assigned to NPIC are rotated, it is
emphasized that their period of assignment generally extends from three to
four years and that they represent only about 40 per cent of our total
contribution.
As I have already advised Mr. Lundahl, it seems inevitable to me that
adoption of a short-term rotation policy will have an adverse impact on
the over-all effectiveness and continuity of Center operations. Further,
such a policy seems inconsistent with the current national dependence and
high level emphasis being placed upon the primacy of the NPIC as an agency
of common concern. The irreplaceable degree of expertise and knowledge
developed over the past few years by the presently constituted staff of
NPIC photo interpreters has permitted them to render competent professional
judgments in the assessment of photography and has been, I believe, the
primary reason why NPIC has been able to respond so effectively to the
needs of the national intelligence community. A policy of short-term rota-
tion, involving a major segment of the national photo interpreter force
GROUP-1
Excluded from automatic
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including those recognized as the unchallenged experts in their respective
fields, would in my judgment diminish the rapidity and continuity of
response which is so vital in day-to-day intelligence/reconnaissance
operations and even more critical during periods of national crisis and
hostilities.
Although I fully recognize and support the requirement for a vigorous
career development and personnel management program, I do not subscribe
to the thesis that a policy of short-term rotation is the best means to
achieve such worthwhile goals.
Although the matter is not entirely clear to me, it is my understanding
that Art Lundahl has had recourse to this short-term rotation policy partly
for career development purposes and partly, perhaps primarily, to accommo-
date to his concept of over-all CIA personnel policy and to balance the
competitive needs of CIA's departmental and NPIC photo interpreter
requirements.
At any rate, Pat, this is the way it looks from where I sit. My
concern would be considerably alleviated if you would look into the matter
with your usual perspicacity and objectivity.
I feel, as I am sure you do, that the NPIC is one of the most effective
and valuable assets in the intelligence community whose record to date
deserves high commendation. My only concern is that such a high standard
of efficiency be maintained and improved and that no ill-advised policies
of DIA or CIA detract from its over-all effectiveness.
Sincerely,
JOSFjH F. CARROLL
Litenant General, USAF
Di vector
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f1'
/ 2A
4l? ,~r& L A_ -e` -IV 71 0--k
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 Appro 7
v . or ev'IA- .
UNCLASSIFIED ~6NFIDENTIAL SECRET
CENTRAL INTELLIGENCE AGENCY
OFFICIAL ROUTING SLIP
Appro
TO
NAME AND ADDRESS
DATE
INITIALS
1
DDCI
2
DD/I
3
D/NPIC
4
5
6
ACTION
DIRECT REPLY
PREPARE REPLY
APPROVAL
DISPATCH
RECOMMENDATION
COMMENT
FILE
RETURN
CONCURRENCE
INFORMATION
SIGNATURE
Remarks :
I agree with Joe.
LBK
FOLD HERE TO RETURN TO SENDER
FROM: NAME, ADDRESS AND PHONE NO.
DATE
Executive Director
4 Dec.
CONFIDENTIAL
SECRET
F 2-6 10. 237 Use previous editions
(40)
U.S. GOVERNMENT PRINTING OFFICE : 1961 0-587282