JOINT STUDY GROUP RECOMMENDATION NO. 21 AND 22
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Document Release Date:
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USIB-D-1.5/23
19 June 1962
U N I T E D S T A T E S I N T E L L I G E N C E B 0 A R D
MEMORANDUM FOR THE UNITED STATES INTELLIGENCE BOARD
SUBJECT Joint Study Group Recommendations No. 21 and 22
REFERENCE USIB-D-1.5/5, 10 March 1961
The attached Coordination Staff memoranda, which are forwarded for
review, respond to instructions of the DCI in the reference, and contain
an analysis of NSC-approved Joint Study Group Recommendations No. 21 and
22, including identification of factors and elements bearing on the
implementation of those Recommendations. This matter will be placed on
`w~ the agenda of an early USIB meeting for discussion and action on the
Coordination Staff recommendations set forth in paragraph 9 of Attachment B.
25X1
Executive Secretary
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Attachment A
USIB-D-1.5/23
19 June 1962
MEMORANDUM FOR: Chairman, United States Intelligence Board
SUBJECT. Joint Study Group Recommendations No. 21 and 22
REFERENCE: USIB-D-1.5/5, 10 March 1961
1. The attached memorandum for the Chairman, United States
Intelligence Board (USIB), on the subject is a response to instructions
by the Director of Central Intelligence (DCI) in the reference that the
Coordination Staff initiate an analysis of Joint Study Group (JSG)
Recommendations No. 21, 22 and 23. The attachment concerns JSG Recom-
mendations No. 21 and 22 only; Recommendation No. 23 will be reported
on separately later.
2. JSG Recommendation No. 21 proposed the establishment of a
central requirements facility, initially to coordinate requirements for
clandestine and SIGINT collection, and if successful subsequently to be
expanded to other requirements. JSG Recommendation No. 22 provided that
the CIA Office of Central Reference be used as the reference facility
by the new central requirements body. National Security Council action
approved by the President on these recommendations referred them to the
USIB for implementation in consultation with the Secretary of Defense
and the Joint Chiefs of Staff, because the Secretary of Defense, while
concurring with the intent of these recommendations, desired further
study on the method of their implementation.
3. The attached memorandum notes that there are within the
intelligence community serious reservations as to the need for or
feasibility of the particular kind of action called for in these recom-
mendations. Despite these reservations, however, the attachment cites
many actions taken within the community to improve the development,
processing and coordination of collection requirements, a number of
them stemming from or stimulated by JSG recommendations.
4+. The attachment concludes that the total effect of these actions,
if energetically and systematically pursued and supported, should be
substantial progress toward the general objective of the JSG
GROUP 1
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recommendations, namely, more effective coordination of collection
requirements throughout the community. Therefore, it recommends that
USIB members, collectively and in their agencies, encourage and support
the strengthening and improvement of systems for coordinating require-
ments within member agencies and the USIB structure; meanwhile, deferring
consideration of the need for or feasibility of a central facility as
envisaged by the Joint Study Group.
Recommendation: That the attached memorandum be circulated to
the USIB for consideration of the recommendations contained in
paragraph 9 thereof.
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Attachment B
USIB D-1.523
19 June 1962
MEMORANDUM FOR: Chairman, United States Intelligence Board
SUBJECT: Joint Study Group Recommendations No. 21 and 22
REFERENCE: USTB-D-1.55 dated 10 March 1961
1. On 10 March 1961, the Coordination Staff of the Director of
Central Intelligence (DCI) was instructed by the Director td initiate
an analysis of Joint Study Group (JSG) Recommendations No. 21, 22 and
23, for the purpose of identifying those factors and elements thereof
which the community might be able to implement without prejudice to
the ultimate decisions within the Department of Defense concerning
reorganization of its intelligence elements. The Coordination Staff
has included information as to its activities pursuant to this
instruction in the reports which it has prepared for the DCI on the
status of actions on Joint Study Group Recommendations as of 1 May
and 21 August 1961 and 1 March 1962. This memorandum concerns JSG
Recommendations No. 21 and 22 only; a separate report on Recom-
mendation No. 23 will be made at a later date.
2. Recommendations No. 21 and 22 themselves, viewed in the light
of the supporting text of the Joint Study Group Report, may be sum-
marized as follows:
a. An interagency body should be established, made up
of top-quality experts drawn from and representing the
collection and production agencies' which should have full
knowledge of all collection resources of the U. S. Government
and to which all intelligence information requirements of all
elements of the Government should be forwarded. This inter-
agency body would make a determination as to the availability
in Washington of the information desired, either in intelligence
reports already disseminated or in the usual public reposi-
tories or both.
b. To assist this interagency body in determining whether
the information desired is available in Washington, the Office
of Central Reference of the Central Intelligence Agency (CIA)
should have .a record of all of the information collected
through intelligence media.
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c. After determining that the information desired as
expressed in a requirement is not available in Washington,
the interagency body should assign the requirement to a
particular collector or collectors in accordance with the
information in the hands of this body as to the collection
resources of the various collectors.
d. This bod should report to the United States Intelli-
gence Board (USIB) any failure to act upon assigned requirements.
e. For the time being, this body should concern itself
only with clandestine and signal intelligence collection.
3. The action of the National Security Council as approved by the
President concurred in principle with Recommendations No. 21 and 22
and referred them to the USIB for implementation in consultation with
the Secretary of Defense and the Joint Chiefs of Staff. This action
was taken because the Secretary of Defense, while concurring with the
intent of these recommendations, desired further study on the method
of their implementation.
4. The Coordination Staff, pursuant to the instructions of the
DCI, discussed and conferred with representatives of the interested
agencies concerning factors involved in implementing Recommendations
No. 21 and 22. It has also participated in or kept informed of
developments throughout the intelligence community related to this
subject, including a number of exploratory studies and experiments.
5. Discussions within the intelligence community with respect
to these recommendations, as well as consideration of the exploratory
efforts, have made clear that there are within the community serious
reservations as to the need for 'or feasi'bili-l y' of the'-particular 'kind of
action called for in these recommendations. Questions have been
raised as to the feasibility of comparing and coordinating, in a
single central office for the entire community, requirements which
vary widely in form, content, subject matter, specificity, and timing,
and differ markedly among agencies and for types of collection. It
has been pointed out that many, if not most, requirements are state-
ments of continuing information needs, more often generalized rather
than specific or detailed requirements that can be satisfied at any
given time or through any particular collection means. Information
requirements related to highly sophisticated collection techniques,
such as space surveillance and overhead reconnaissance, require
special treatment and are being effectively coordinated on a
functional basis. The areas suggested by Joint Study Group Recom-
mendation No. 21 for initial experimentation, namely clandestine
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and signal intelligence collection, have formal coordination mechanisms
in the Interagency Clandestine Collection Priorities Committee (IPC)
and the SIGINT Committee. The need for a single central office to
police duplicate requirements has been questioned, both as to the
seriousness of the problem and the possibility of other remedies.
Finally, concern has been expressed as to the effect of these recom-
mendations upon command channels and established operational concepts
which could lead to serious administrative and management problems.
6. Despite these reservations concerning the precise terms of
JSG Recommendations No. 21 and 22, many improvements have been made
by the intelligence community in the development, processing and
coordination. of collection requirements, a number of them stemming
from or stimulated by these and other recommendations of the Joint
Study Group. Among the actions which contributed to such improvements,
many of which are also the results of continuing efforts by the
agencies involved, are the following:
a. USIB has revised and refined the Ptiority National
Intelligence Objectives (PNIO's), as well as approved coordi-
nated statements of requirements in a number of fields such
as space surveillance.
b.:.,.Various USIB committees have strengthened their coordi-
Vi.+' nation of requirements, as for example the revised IPC lists
and the new COMINT and FLINT requirements lists.
c. A compatible system for numbering requirements has been
adopted by the CIA, the Defense Intelligence Agency (DIA) and
the State Department.
d. DIA has been charged with registering, evaluating, and
assigning priorities to all Department of Defense (DOD) intelli-
gence requirements and those levied upon DIA by non-DOD agencies.
The system for discharging this responsibility has been activated
and is-in the process of evolutionary development, including a
requirements registry which is compatible with that being developed
in CIA.
e. 'I'he Office of Central Reference in the 'CIA designed a
system for and conducted an experiment in the indexing and
recording by machine-processing of individual collection require-
ments. Based on this experiment, a Requirements Registry.has
been authorized on a provisional basis, to report to a newly
appointed Staff Requirements Coordinator. The Registry is to
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provide management-type information and subject-area coverage
.of requirements originated in or levied upon CIA. A CIA
Requirements Committee has been formed to consider collection
guidance and requirements problems within CIA. While the specific
scope of its activities and responsibilities is not yet firm,
a working group of this committee is drafting a revised collection
guidance program designed to provide more adequate guidance to
collectors upon whom CIA levies requirements.
rovements have been made in
specially related to require-
atisfaction of requirements.
g. The State Department has initiated, on a limited scale,
a program of annual guidance to foreign service posts for
reporting in fields of primary intelligence interest to the
Department.
7. The total effect of these actions, if energetically and
systematically pursued and supported, should be substantial progress
toward the general-objective of the Joint Study Group recommendations,
namely more effective coordination of collection requirements
throughout the intelligence community. The role of DIA in integrating
DOD requirements should reduce markedly the problem of interagency
%/ coordination of requirements, and facilitate such coordination between
and among CIA, State, DIA and the National Security Agency. Improve-
ments made in the requirements system within CIA should offer further
benefits to the community at large. Continuation and strengthening
of State's program of reporting guidance to overseas missions would
help serve the community's needs.
8. Actions taken or being considered by the individual agencies,
supplemented and supported by the USIB and its committees, provide an
essential foundation on which any system. of community-wide coordi-
nation of intelligence requirements must be built. Further development
and evolution of these agency programs should therefore be pressed
forward vigorously prior to determining the necessity for or merits of
any central facility for coordinating all intelligence requirements.
9. Recommendations:
a. That USIB members, collectively and in their respective
agencies, encourage and support the strengthening and:i?aprovement
of the systems within member agencies and ifn the'USIB committee
structure for coordinating the development and processing of
collection requirements.
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b. That, pending the results of further action pursuant
to a. above, USIB defer consideration of the need for or
feasibility of a central requirements facility as envisaged
in Joint Study Group Recommendations No. 21 and 22.
Assistant for Coordination
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