BRIEFING MATERIALS FOR ADMIRAL TURNER

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80M00165A002500110022-2
• Release Decision: RIPPUB
• Original Classification: T
• Document Page Count: 12
• Document Creation Date: December 15, 2016
• Document Release Date: April 5, 2004
• Sequence Number: 22
• Publication Date: February 15, 1977
• Content Type: MF

? Approved For Release 2001P80M00165A002500110022
MEMORANDUM FOR:
15 February 1977
Executive Assistant to the
DCI-Designate, ADM Stansfield Turner
SUBJECT : Briefing Materials for Admiral Turner
The following items, responsive either directly or indirectly
to requests from Admiral Turner, are forwarded herewith:
1. Memorandum for Acting DCI from D/DCI/NI
. dated 15 Feb 77; Subject: Projections
of Soviet Civil Defense Activity..
Note: This memo answers question 1 a
requested on 9 Feb 77 from
2. General daily newsclippings.'
3. Memorandum for Admiral Turner from OGC dated
15 Feb 77; Subject: Changes in DCI Res nsi-
bilities on Shift from Peace to War. I
Note: This answers requested
on 9 Feb 77 from
4. Memorandum for Admiral Turner from OGC dated
14 Feb 77; Subject: Legal Relationship of the
DCI and the Assistant to the President for
National Security Affairs.
Note:' This answers question for OGC requested
on 9 Feb 77 from
Attachments
Special Assistant
to DDCI
ciassitted by Signer
Exempt from Sene:at Ceclas.ificatich
1t;1~ f f P ' W ('
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Ori cj - Adse.
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w/copies of covering memos to attachments.
'I - w /copy of covering memos to attachments.
i - ER w/copy of covering memos- to attachments,
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 SECRET
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National Intelligence Officers
1(10 ._ S3.~ ry.17--_m
SP - 40/77
15 February 1977
MEMORANDUM FOR: Acting Director of Central Intelligence
SUBJECT: Projections of Soviet Civil Defense Activity
1. With respect to Admiral Turner's questions about grain storage
bunkers, we have no evidence that the construction of such facilities is
continuing. There is little uncertainty about the size, numbers, and total
capacity of the bunkers, although we have no information on how much grain
is actually stored in them or for what purpose. We consider these facilities
more important as an indicator of national policy for the maintenance of
strategic reserves than as a major source of food in a post-attack environ-
ment (see Attachment A).
2. Admiral Turner's request for projections of other key indicators of
Soviet civil defense efforts poses a more difficult problem. The unhappy
truth is that the Intelligence Community's data base on the Soviet civil
defense program is not sufficiently well-developed to provide a sound basis
for such projections at this time. In responding to the Admiral's question,
therefore, we begin by emphasizing some of the things we do not know about
the Soviet program (Attachment B) and we end by outlining our efforts to
rectify this situation (Attachment D). We have also provided some projections
of the kind requested (Attachment C), but the sample of data on which they are
based is so small and the range of uncertainty in the data is so great that
the projections are driven mainly by assumptions which cannot be substantiated
by facts at this time.
3. Contrary to the impression created by some press accounts, there are
no significant differences within-the Intelligence Community about the facts
now available on Soviet civil defense activities. Admiral Turner is correct
that the intelligence components of the USAF and the Department of State
represent the extreme ends of a range of views in the community, but this
controversy is about Soviet motives and about the strategic implications of
Soviet civil defenses, not about such questions as the number of shelters
identified. It should be noted, moreover, that the more extreme position
taken by General Keegan on the strategic impact of current Soviet civil
defenses was not supported by the JCS, although they have expressed concern
about the future implications. The various collection and analysis groups
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F,;rem?~t omp
c' did 2Y`42 n sc;:elute of E.O. 11552
'_ idid -4,>;lule 5B (1), (2), (3)
F1.aor.:a1%-,!1y declassltiod on
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SUBJECT: Projections of Soviet Civil Defense Activity
in the community are working together in a cooperative effort to improve the
data base and to develop more definitive analyses of the scope, pace, and
effectiveness of the Soviet program.
4. The projections in Attachment C were prepared by CIA. No attempt
has been made to coordinate them with other intelligence agencies. Because
these projections are of doubtful validity and because the Intelligence
Community is working now to develop more facts and better analyses, we
strongly recommend that no projections be presented to consumers of intelli-
gence in the Administration or Congress at this time. Such presentation
could lead consumers to premature conclusions and could encourage other
intelligence agencies prematurely to develop rival projections.
5. For your convenience, Admiral Turner's questions are at Attachment E.
The Admiral would probably also be interested in the Interagency Intelligence
Memorandum on Soviet civil defense which was published in November 1976.
Richard Lehman
Deputy to the DCI for National Intelligence
Attachments
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SP - 40/77
SUBJECT: Projections of Soviet Civil Defense Activity
Distribution:
1 - Addressee
1 - ER
1 - D/DCI/NI
1 - DDI
1 - D/OSR
1 - C/OSR/SEC
1 - C/OSR/SEC/SAS
1 - D/OIA
1 - NIO/SP
1 - NI0/RI
NIO/SP:HStoertz:mat/5721 (15Feb77)
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Sam Ch 4l Defense
{ Top Secret
Top Secret
November
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 Approved For Release 2004/05/05 : CIA-RDP80M00165A002500110022-2
15 February 1977
FROM : Anthony A. Lapham
General Counsel.
SUBJECT : Changes in DCI Responsibilities on Shift
from Peace to War
1. This is in response to your request relayed to us by
I bor a paper concerning changes in the responsibilities of
the Director in the event of a shift from peace to war.
2. In the event of a declaration of war, there undoubtedly would
be prompt enactment of war powers legislation in various areas. Quite
possibly such legislation would in some way subordinate the Director
and the Agency to the Secretary of Defense or the Joint Chiefs. It is
of interest and a likely pattern that the Office of Strategic Services created
during World War II by a military order of the Commander-in-Chief
(not the President) was under the jurisdiction of the Joint Chiefs. An
additional and alternative possibility is that by legislation or Executive
order, Agency installations and personnel located in an area of the world
where United States military forces existed would become subordinate to
the commanding officer.
3. There is no existing statute which would modify the Director's
responsibility in the event of war. In particular, neither the National
Security Act of 1947, which established the Agency or the position of
Director, or the CIA Act of 1949 addresses the subject.
4. Several NSC Intelligence Directives provide for changes in DCI
authority and responsibility in the event of war:
(a) NSCID No. 5 (section 8) provides that in "active theaters
of war where U.S. forces are engaged ... the entire Central
Intelligence Agency organization conducting espionage and
clandestine counterintelligence operations in or from a theater
shall, as a component force, be under the direct command of the
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U.S. Theater Commander, in accordance with agreements
separately reached between the Director of Central Intelligence
and the Secretary of Defense, and shall provide espionage and
counterintelligence support to military operations. "
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(c) NSCID No. 8 established the photographic interpretation
program for the intelligence agencies, including the National
Photographic Interpretation Center (NPIC), to be operated
by the Director of Central Intelligence as a service of common
concern. The directive also provides that the "administration of
NPIC in time of war shall be transferred to the Secretary of
Defense.
"
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Anthony A. Lapham
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 UNCLASSIFIE7 INTERNAL CONFIDENTIAL
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Anthony A. Lapharr,
General Counsel.
TO. (Officer designation, room number, and yg7F
building)
s.... _ RFCFIVr I r VAIYhfU
Attached is our pa-per res-
potns:ivc if; item lU of your assi ?s,
meat h t of 9 February for Adiiir~:,l
Turner, concerning the Jaws anc:jl
?,r E'C ;.ivE:. -\vhich gaver-,.i the re
~au'w.,i,il, of the UCI ar,c'j the
>{.'.:istarii tc, the Presideni. for
Nation;,] Security Affairs.
''cry, w,,,iJl 3ic3te that in para.grapl,
9 we mrn;t.ion -a directive which
~ir.c~jrecaiy rcFJ,Iat:e~: ii,c- rei,.i on~?J~i
of those two office.; I,ai el.y , the
(
J`.XC~~'t7tJ'VE CIrd'r )
which j??ovides that the ).)hector
1.5 February 1977
SECRET
is to , efing of
the President early each-z clay
rather than acquiescing in having
that function performed by Mr.
Brzezinski. You might want to
highlight paragraph 9 for Admiral
Turner.
Anthony Lap ham
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FORM 61 USEfl ON payer elea 0 ~{Q050,A~DPq"064MA(?025001 22 CLASS IF I ED
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OGC 77-0953
14 February 1977
FROM Anthony A. Lapham
General Counsel
SUBJECT : Legal Relationship of the DCI and the Assistant
to the President for National Security Affairs
1. as relayed to this Office your request for a paper on
the laws, regulations and directives that govern the relationship of the
DCI and the Assistant to the President for National Security Affairs.
2. President Carter, on 20 January, issued a directive which,
among other things, prescribes certain relationships of the Director and
the Assistant for National Security Affairs. But that directive (designated
as "Presidential Directive/NSC-2"), copy attached at Tab A, does not
establish a command or subordinate position for either of those two officials
in relation to the other. It does establish certain committees with the
National Security Assistant and the Director as members. Each also is
chairman of at least one committee. It also provides that the National
Security Assistant and the Director, and other named officials, are to
"attend appropriate NSC meetings."
3. Aside from PD/NSC-2, there are very few Executive orders or
other directives relevant to the question and there are no directly relevant
statutes. It is to be noted that the National Security Act of 1947 established
the National Security Council and CIA "under the National Security Council"
with certain duties to be performed "under the direction of the National
Security Council." The Council is composed of the President, the Vice
President, the Secretary of State and the Secretary of Defense. The Act
provides that the Council "shall have a staff to be headed by a civilian
executive secretary" (a position which has not been filled since 1969).
The statute does not refer to or contemplate in any way an Assistant to
the President for National Security Affairs and does not subordinate the
Director, or the Agency, to the NSC staff. The relevant provisions of the
National Security Act are attached at Tab B.
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4. We are advised by Mrs. Jeanne Davis, the staff secretary to the
National Security Council, that through the years the Presidents have
not in writing instructed or authorized the National Security Assistant
to supervise or direct the NSC staff, but they have given oral instructions
to that effect and the National Security Assistants in fact have supervised
and directed the work of the NSC staff. They have also issued directives
and instructions to the agencies, including of course to CIA and other
Intelligence Community agencies. Generally these directives have been
issued in the form of memoranda on NSC letterhead, addressed to specified.
agency heads, and signed by the Assistant to the President for National
Security Affairs.
5. Another directive signed by President Carter on 20 January
"Presidential Directive/NSC-1" (attached at Tab C) abolished the two
types of directives theretofore used for NSC matters (National Security
Study Memoranda and National Security Decision Memoranda) and
established instead two new categories of instruments - Presidential
Directives (PDs)/NSC, of which that 20 January directive was
number 1, and Presidential Review Memoranda (PRMs)/NSC. The two new
categories of instruments were "established to direct the work of the
National Security Council and participating agencies." PDs/NSC are to be
used "to promultage.Presidential decisions on national security matters, "
PRMs/NSC will "direct that reviews and analyses be undertaken by the
departments and agencies." PD/NSC-1 does not indicate who will have the
authority to sign these NSC instruments and who, in fact, will do so
PD/NSC-1 and 2 were signed by the President and I believe no additional ones
have been issued. A number of PRMs/NSC have been issued, most, if not
all, signed by the Assistant to the President for National Security Affairs .
It may be that the intention is that the President will sign the former directives
and Mr. Brzezinski the latter.
6. The basic Executive order governing the intelligence agencies is
Executive Order 11905, issued in February 1976 by President Ford to
confer authorities and responsibilities on the various intelligence agencies, to
provide for accountability, responsibility and oversight mechanisms within
the executive branch and to place certain restrictions on the intelligence
agencies. Under that Order, the Special Assistant for National Security
Affairs and the Director are members of the Operations Advisory Group (OAG),
also established by the Order and charged with considering and developing
policy recommendations "for the President prior to his decision on each
special activity in support of national foreign policy objectives" (covert
actions) and with certain other specified functions. Under the Order, the
chairman of OAG was to be designated by the President and General Scowcroft
was so designated.
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7. PD/NSC-2, which, as mentioned, sets up NSC committees and other-
wise regulates the NSC function, is in the form of a Presidential memorandum
addressed to certain agency heads and the Vice President. The committees
established by that directive are intended to succeed and replace certain
committees established by Executive Order 11905, including the Operations
Advisory Group. In view of the intention that the committees established
by PD/NSC-2 replace similar committees established by Executive Order
11905, Mr. Brzezinski on 26 January requested the Attorney General to
submit a proposed amendment to Executive Order 11905 to replace the
latter committees. We are advised that an amendment to Executive Order 11905
has been prepared by the Department of Justice and forwarded to Mr. Brzezinski.
8. A PRM/NSC is being developed by the NSC staff, in consultation
with the agencies, which would direct a review and study of the effective-
ness of the intelligence effort and procedures and mechanisms under Executive
Order 11905. That study likely would result in additional amendments to
Executive Order 11905.
9. A directive which indirectly regulates the relationship between the
President's Assistant for National Security Affairs and the DCI is the
provision of Executive Order 11905 which authorizes the Director to act "as
the President's primary adviser on foreign intelligence and provide him
and other officials in the executive branch with foreign intelligence."
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