DOCSLIB.ORG

U.S. Intelligence Reform a Bureaucratic Politics Approach

Total Page：16

File Type：pdf, Size：1020Kb

Download full-text PDF Read full-text
U.S. Intelligence Reform a Bureaucratic Politics Approach University of Central Florida STARS Electronic Theses and Dissertations, 2004-2019 2010 U.S. Intelligence Reform A Bureaucratic Politics Approach Bonnie M. Schickler University of Central Florida Part of the Political Science Commons Find similar works at: https://stars.library.ucf.edu/etd University of Central Florida Libraries http://library.ucf.edu This Masters Thesis (Open Access) is brought to you for free and open access by STARS. It has been accepted for inclusion in Electronic Theses and Dissertations, 2004-2019 by an authorized administrator of STARS. For more information, please contact [email protected]. STARS Citation Schickler, Bonnie M., "U.S. Intelligence Reform A Bureaucratic Politics Approach" (2010). Electronic Theses and Dissertations, 2004-2019. 1669. https://stars.library.ucf.edu/etd/1669 U.S. INTELLIGENCE REFORM: A BUREAUCRATIC POLITICS APPROACH by BONNIE M. SCHICKLER B.A. University of Central Florida, 2008 A thesis submitted in partial fulfillment of the requirements for the degree of Master of Arts in the Department of Political Science in the College of Science at the University of Central Florida Orlando, Florida Fall Term 2010 © 2010 Bonnie Schickler ii ABSTRACT This study investigates the current bureaucratic struggles that exist within the U.S. intelligence community as a result of the Intelligence Reform and Terrorism Prevention Act (IRTPA) of 2004. The first part of this research examines the history of intelligence reform in the United States beginning with the National Security Act of 1947. The second part provides an in- depth discussion of the 2004 legislation as well as an examination of the main bureaucratic conflicts that have arisen between the Director of National Intelligence (DNI) and the rest of the U.S. intelligence community. This study used the bureaucratic politics model to explain the development of the current disagreements, the reasons behind the DNI‘s struggle for power, and the intelligence community‘s inability to adapt to the reform. This research determined that the current conflicts have occurred as a result of the unclear authorities issued to the DNI by IRTPA and have been further exacerbated by interest-driven intelligence agencies and a well-developed culture that has proven difficult to abandon. This research also provides insight into several alternative approaches that can be used to explain the current U.S. intelligence reform process. Additionally, recommendations were made for reducing the bureaucratic friction that currently exists within the intelligence community and to strengthen the overall authority of the Director of National Intelligence. iii TABLE OF CONTENTS LIST OF TABLES ......................................................................................................................... vi LIST OF ACRONYMS/ABBREVIATIONS ............................................................................... vii CHAPTER ONE: INTRODUCTION ............................................................................................. 1 Significance of Proposed Research: A New Approach .............................................................. 1 Why Research This Topic Now? ................................................................................................ 4 Methodology ............................................................................................................................... 6 Looking Ahead............................................................................................................................ 8 CHAPTER 2: LITERATURE REVIEW ...................................................................................... 11 Main Actors .............................................................................................................................. 12 Main Tenants ............................................................................................................................ 12 Standard Operating Procedures................................................................................................. 17 Critiques of the Bureaucratic Politics Model ............................................................................ 18 CHAPTER 3: HISTORY OF U.S. INTELLIGENCE REFORM................................................. 20 The Bureaucratic Politics Model and U.S. Intelligence Reform .............................................. 21 U.S. Intelligence: Post World War II ........................................................................................ 22 U.S Intelligence Reform in the 1950s and 60s ......................................................................... 23 Intelligence Reform in the 1970s .............................................................................................. 25 Intelligence Reform in the 1990s .............................................................................................. 29 DCI v. D/CIA ............................................................................................................................ 31 Conclusion ................................................................................................................................ 32 CHAPTER 4: INTELLIGENCE REFORM AND TERRORISM PREVENTION ACT OF 2004 ....................................................................................................................................................... 33 The Intelligence Community Prior to 9/11 ............................................................................... 33 The White House Prior to 9/11 ................................................................................................. 36 Passing Reform Legislation ...................................................................................................... 40 Director of National Intelligence .............................................................................................. 45 New Agencies ........................................................................................................................... 48 Intelligence Activities ............................................................................................................... 49 HUMINT................................................................................................................................... 51 Open Source .............................................................................................................................. 52 iv Information Sharing .................................................................................................................. 53 Domestic Intelligence ............................................................................................................... 54 Conclusion ................................................................................................................................ 55 CHAPTER 5: BUREAUCRATIC CONFLICTS ......................................................................... 56 Acceptance of Change .............................................................................................................. 58 Realistic Conflict Group Theory ............................................................................................... 59 Authority of the DNI ................................................................................................................. 61 The ODNI and Defense Department Relationship ................................................................... 64 DNI and CIA Turf Battles......................................................................................................... 67 Culture Wars ............................................................................................................................. 69 Assertion of Authorities ............................................................................................................ 71 Conclusion ................................................................................................................................ 72 CHAPTER 6: ALTERNATIVE VIEWS ...................................................................................... 73 Organization Theory and Intelligence Reform ......................................................................... 73 A Comparative Approach ......................................................................................................... 77 Lack of Presidential Support ..................................................................................................... 80 Groupthink ................................................................................................................................ 84 Centralization v. Coordination .................................................................................................. 85 CHAPTER 7: SOLUTIONS FOR THE FUTURE ....................................................................... 90 Proposals Currently Under Consideration ................................................................................ 91 Responsibilities of the DNI ....................................................................................................... 92 Tenured DNI and Department of Intelligence .......................................................................... 93 Support for the DNI .................................................................................................................. 96 Shift in Culture .........................................................................................................................
Load more

Recommended publications
  • Deception, Disinformation, and Strategic Communications: How One Interagency Group Made a Major Difference by Fletcher Schoen and Christopher J
    STRATEGIC PERSPECTIVES 11 Deception, Disinformation, and Strategic Communications: How One Interagency Group Made a Major Difference by Fletcher Schoen and Christopher J. Lamb Center for Strategic Research Institute for National Strategic Studies National Defense University Institute for National Strategic Studies National Defense University The Institute for National Strategic Studies (INSS) is National Defense University’s (NDU’s) dedicated research arm. INSS includes the Center for Strategic Research, Center for Complex Operations, Center for the Study of Chinese Military Affairs, Center for Technology and National Security Policy, Center for Transatlantic Security Studies, and Conflict Records Research Center. The military and civilian analysts and staff who comprise INSS and its subcomponents execute their mission by conducting research and analysis, publishing, and participating in conferences, policy support, and outreach. The mission of INSS is to conduct strategic studies for the Secretary of Defense, Chairman of the Joint Chiefs of Staff, and the Unified Combatant Commands in support of the academic programs at NDU and to perform outreach to other U.S. Government agencies and the broader national security community. Cover: Kathleen Bailey presents evidence of forgeries to the press corps. Credit: The Washington Times Deception, Disinformation, and Strategic Communications: How One Interagency Group Made a Major Difference Deception, Disinformation, and Strategic Communications: How One Interagency Group Made a Major Difference By Fletcher Schoen and Christopher J. Lamb Institute for National Strategic Studies Strategic Perspectives, No. 11 Series Editor: Nicholas Rostow National Defense University Press Washington, D.C. June 2012 Opinions, conclusions, and recommendations expressed or implied within are solely those of the contributors and do not necessarily represent the views of the Defense Department or any other agency of the Federal Government.
    [Show full text]
  • The Proposed Authorities of a National Intelligence Director: Issues for Congress and Side-By-Side Comparison of S
    Order Code RL32506 CRS Report for Congress Received through the CRS Web The Proposed Authorities of a National Intelligence Director: Issues for Congress and Side-by-Side Comparison of S. 2845, H.R. 10, and Current Law Updated October 5, 2004 -name redacted- Specialist in Intelligence and National Security Foreign Affairs, Defense, and Trade Division Congressional Research Service ˜ The Library of Congress The Proposed Authorities of a Director of National Intelligence: Issues for Congress, and Side-by-Side Comparison of S. 2845, H.R. 10, and Current Law Summary The 9/11 Commission, in its recent report on the attacks of September 11, 2001, criticized the U.S. Intelligence Community’s (IC) fragmented management structure and questioned whether the U.S. government, and the IC, in particular, is organized adequately to direct resources and build the intelligence capabilities that the United States will need to counter terrorism, and to address the broader range of national security challenges in the decades ahead. The Commission made a number of recommendations, one of which was to replace the current position of Director of Central Intelligence (DCI) with a National Intelligence Director (NID) who would oversee national intelligence centers on specific subjects of interest — including a National Counterterrorism Center (NCTC) — across the U.S. government, manage the national intelligence program; oversee the agencies that contribute to it; and have hiring, firing, and budgetary authority over the IC’s 15 agencies. Although the Commission recommended that the director be located in the Executive Office of the President, the Commission Vice Chairman in testimony before Congress on September 7, 2004, withdrew that portion of the recommendation in light of concerns that the NID would be subject to undue influence.
    [Show full text]
  • Directors of Central Intelligence As Leaders of the U.S
    All statements of fact, opinion, or analysis expressed in this book are those of the author. They do not necessarily reflect official positions of the Central Intel- ligence Agency or any other US government entity, past or present. Nothing in the contents should be construed as asserting or implying US government endorsement of the authors’ factual statements and interpretations. The Center for the Study of Intelligence The Center for the Study of Intelligence (CSI) was founded in 1974 in response to Director of Central Intelligence James Schlesinger’s desire to create within CIA an organization that could “think through the functions of intelligence and bring the best intellects available to bear on intelli- gence problems.” The Center, comprising professional historians and experienced practitioners, attempts to document lessons learned from past operations, explore the needs and expectations of intelligence consumers, and stimulate serious debate on current and future intelligence challenges. To support these activities, CSI publishes Studies in Intelligence and books and monographs addressing historical, operational, doctrinal, and theoretical aspects of the intelligence profession. It also administers the CIA Museum and maintains the Agency’s Historical Intelligence Collection. Comments and questions may be addressed to: Center for the Study of Intelligence Central Intelligence Agency Washington, DC 20505 Printed copies of this book are available to requesters outside the US government from: Government Printing Office (GPO) Superintendent of Documents P.O. Box 391954 Pittsburgh, PA 15250-7954 Phone: (202) 512-1800 E-mail: [email protected] ISBN: 1-929667-14-0 The covers: The portraits on the front and back covers are of the 19 directors of central intelligence, beginning with the first, RAdm.
    [Show full text]
  • Executive Order 12036 1-11. The
    Executive~ Order 12036 Proposed Executive Order Reason for Change 1-11. The Department of Defense. 1.11 The Department of Defense. The Secretary of The Secretary of Defense Defense shall: shall: 1-1101. Collect national (a) Collect national Technical change. foreign intelligence and be foreign intelligence and be responsive to collection tasking responsive to collection tasking by the NITC. by the Director of Central · Intelligence; I I 1-1102. Collect, produce (b) Collect, produce and Technical change. and disseminate foreign military disseminate military and and military-related intelligence military-related foreign intelli­ information, including scien- · gence and counterintelligence as tific, technical, political, required for execution of the geographic and economic. informa­ Secretary's responsibilities; tion as required for execution of the Secretary's responsibilities; 1-1103. Conduct programs (c) Conduct programs and and missions necessary to fulfill missions necessary to fulfill national and tactical foreign national, departmental and intelligence requirements; tactical foreign intelligence requirements; 43 E~ecutive Order 12036 Proposed ~x e c~ t ive Orae r Reason for Change (1.11 Continued) 1-1104. Conduct counter­ (d) Conduct counter­ Unnecessary language intelligence activities in intelligence activities in eliminated. support of Department of Defense support of Department of Defense components outside the United components outside the United States in coordination with the States in coordination with the CIA, and within the United States CIA, and within the United States in coordination with the FBI in coordination with the FBI, pursuant to procedures agreed pursuant to procedures agreed upon by the Secretary of Defense upon by the Secretary of Defense and the Attorney General, and and the Attorney General; produce and disseminate counter­ intelligence studies and reports; 1-1105.
    [Show full text]
  • Intelligence Community Programs, Management, and Enduring Issues
    Intelligence Community Programs, Management, and Enduring Issues (name redacted) Analyst in Intelligence and National Security Policy November 8, 2016 Congressional Research Service 7-.... www.crs.gov R44681 Intelligence Community Programs, Management, and Enduring Issues Summary Congress’s and the American public’s ability to oversee and understand how intelligence dollars are spent is limited by the secrecy that surrounds the intelligence budget process. Yet, total spending on the Intelligence Community (IC) programs discussed in this report equates to approximately $70 billion dollars—roughly 10% of national defense spending. This report is designed to shed light on the IC budget—in terms of its programs, management, and enduring issues—using unclassified materials available in the public domain. This report focuses those IC programs, grouped, for the most part, under two labels: (1) the National Intelligence Program (NIP), and (2) the Military Intelligence Program (MIP). Nevertheless, the combined NIP and MIP budgets do not encompass the total of U.S. intelligence- related spending. Intelligence-related programs that are not part of the IC include, for example, the large Office of Intelligence within the Department of Homeland Security’s (DHS’s) Immigration and Customs Enforcement (ICE) division. The ICE Office of Intelligence is not included in the IC because, theoretically, ICE activities primarily support the DHS mission to protect the homeland. This report explains the management structure for the NIP and MIP to include their two separate budget processes and the roles of the Director of National Intelligence and the Under Secretary of Defense (Intelligence). The concluding section of this report considers the ability of the U.S.
    [Show full text]
  • Open Source Intelligence (OSINT)
    ATP 2-22.9 Open-Source Intelligence July 2012 DISTRIBUTION RESTRICTION: Unlimited Distribution Headquarters, Department of the Army *ATP 2-22.9 Army Techniques Publication Headquarters No. 2-22.9 (FMI 2-22.9) Department of the Army Washington, DC, 10 July 2012 Open-Source Intelligence Contents Page PREFACE.............................................................................................................. iv INTRODUCTION .................................................................................................... v Chapter 1 OPEN-SOURCE INTELLIGENCE (OSINT) FUNDAMENTALS ........................ 1-1 Definition and Terms .......................................................................................... 1-1 Characteristics .................................................................................................... 1-1 The Intelligence Warfighting Function ................................................................ 1-2 The Intelligence Process .................................................................................... 1-3 The Planning Requirements and Assessing Collection Process ........................ 1-4 The Military Decisionmaking Process ................................................................ 1-4 Intelligence Preparation of the Battlefield ........................................................... 1-5 Chapter 2 PLANNING AND PREPARATION OF THE OSINT MISSION ............................. 2-1 Section I – Planning OSINT Activities ...........................................................
    [Show full text]
  • DNI Open Source Conference 2008 Transcripts
    Office of the Director of National Intelligence Transcripts from the DNI Open Source Conference 2008 Washington, DC September 11, 2008 – September 12, 2008 The links below will forward you to the appropriate transcripts: 1) Mr. Glenn Gaffney Deputy Director of National Intelligence for Collection 2) Mr. Michael V. Hayden Director of the Central Intelligence Agency 3) Ms. Christine McKeown Office of the Under Secretary of Defense for Intelligence 4) Mr. Doug Naquin Director of the Open Source Center 5) Mr. Charles E. Allen DHS Under Secretary for Intelligence & Analysis 6) Panel: Managing the Balance Between Privacy & National Security 1 Remarks and Q&A by the Deputy Director of National Intelligence for Collection Mr. Glenn A. Gaffney DNI Open Source Conference 2008 Washington, DC MS. SABRA HORNE (ODNI Senior Advisor for Open Source/Outreach): Good morning. Welcome ladies and gentlemen and welcome to the Second Annual DNI Open Source Conference. We’re thrilled to have you here. I’m Sabra Horne, Senior Advisor for Outreach and the organizer for this event. We see many familiar faces here, a lot of the wonderful folks we’ve worked with over the past few years as well as those of you who were able to attend the conference last year. But in this last year, we’ve added many, many, many new faces to our friends and family list – those of you who know that using open source is vital in ensuring that we protect our national security. Our list of friends and family has grown, and grown, and grown. You recognize that open source information is critical in transcending the confines of the traditional Intelligence Community.
    [Show full text]
  • ANTONY ANTONIOU (OSINT Security Analyst)
    EUROPEAN INTELLIGENCE ACADEMY (EIA) E-BOOK No. 1, MAY 2013 ANTONY ANTONIOU (OSINT Security Analyst) OPEN SOURCE INFORMATION, THE FUTURE OF INTELLIGENCE Copyright: Research Institute for European and American Studies (RIEAS) EUROPEAN INTELLIGENCE ACADEMY E-BOOK No. 1 MAY 2013 OPEN SOURCE INFORMATION, THE FUTURE OF INTELLIGENCE ANTONY ANTONIOU (OSINT Security Analyst) Preface. People from ancient times to our days had understood the importance of information and the significant role that valid information can play in all fields of human activities (politics, economy, during wars etc). References to spies, and their methods – techniques and means that they used can be found in historical texts from antiquity until today, also known theorists of war have addressed and reported (in their writings), the importance of information and the necessity of an enemy misinformation (we will mention two of them of Carl Von Clausewitz1 and Sun - Tzu2). The intelligence services began to take shape during the Second World War. Pioneers at the “intelligence field” were the Germans (in espionage, cryptography - cryptology, propaganda and generally speaking at the development of the appropriate techniques – methods and instruments – means), followed by British. Americans because of their non-participation in the war had left behind in the development of techniques and means for collecting and processing information. This changed after the Japanese attack on Pearl Harbor3 and the American entry into the war4. The USA intelligence 1 Carl Philipp Gottfried von Clausewitz (1 July 1780 – 16 November 1831): was a German-Prussian soldier and military theorist who stressed the "moral" (in modern terms, psychological) and political aspects of war.
    [Show full text]
  • Congressional Oversight of Intelligence: Background and Selected Options for Further Reform
    Congressional Oversight of Intelligence: Background and Selected Options for Further Reform December 4, 2018 Congressional Research Service https://crsreports.congress.gov R45421 SUMMARY R45421 Congressional Oversight of Intelligence: December 4, 2018 Background and Selected Options for Further Michael E. DeVine Reform Analyst in Intelligence and National Security Prior to the establishment of the Senate Select Committee on Intelligence (SSCI) and the House Permanent Select Committee on Intelligence (HPSCI) in 1976 and 1977, respectively, Congress did not take much interest in conducting oversight of the Intelligence Community (IC). The Subcommittees on the Central Intelligence Agency (CIA) of the congressional Armed Services Committees had nominal oversight responsibility, though Congress generally trusted that IC could more or less regulate itself, conduct activities that complied with the law, were ethical, and shared a common understanding of national security priorities. Media reports in the 1970s of the CIA’s domestic surveillance of Americans opposed to the war in Vietnam, in addition to the agency’s activities relating to national elections in Chile, prompted Congress to change its approach. In 1975, Congress established two select committees to investigate intelligence activities, chaired by Senator Frank Church in the Senate (the “Church Committee”), and Representative Otis Pike in the House (the “Pike Committee”). Following their creation, the Church and Pike committees’ hearings revealed the possible extent of the abuse of authority by the IC and the potential need for permanent committee oversight focused solely on the IC and intelligence activities. SSCI and HPSCI oversight contributed substantially to Congress’s work to legislate improvements to intelligence organization, programs, and processes and it enabled a more structured, routine relationship with intelligence agencies.
    [Show full text]
  • New Tools for Collaboration: the Experience of the U.S. Intelligence Community
    JANUARY 2016 1616 Rhode Island Avenue NW Washington, DC 20036 202-887-0200 | www.csis.org Lanham • Boulder • New York • London 4501 Forbes Boulevard Lanham, MD 20706 301- 459- 3366 | www.rowman.com Cover photo: Rawpixel.com/Shutterstock New Tools for Collaboration The Experience of the U.S. Intelligence Community A Report of the CSIS Strategic Technologies Program ISBN 978-1-4422-5912-6 AUTHOR Ë|xHSLEOCy259126z v*:+:!:+:! Gregory F. Treverton Blank New Tools for Collaboration The Experience of the U.S. Intelligence Community AUTHOR Gregory F. Treverton January 2016 A Report of the CSIS Strategic Technologies Program Lanham • Boulder • New York • London About CSIS For over 50 years, the Center for Strategic and International Studies (CSIS) has worked to develop solutions to the world’s greatest policy challenges. Today, CSIS scholars are providing strategic insights and bipartisan policy solutions to help decisionmakers chart a course toward a better world. CSIS is a nonprofit organization headquartered in Washington, D.C. The Center’s 220 full-time staff and large network of affiliated scholars conduct research and analysis and develop policy initiatives that look into the future and anticipate change. Founded at the height of the Cold War by David M. Abshire and Admiral Arleigh Burke, CSIS was dedicated to finding ways to sustain American prominence and prosperity as a force for good in the world. Since 1962, CSIS has become one of the world’s preeminent international institutions focused on defense and security; regional stability; and transnational challenges ranging from energy and climate to global health and economic integration. Thomas J.
    [Show full text]
  • The CIA Mandate and the War on Terror
    The CIA Mandate and the War on Terror Grant T. Harrist I. INTRODUCTION The American intelligence infrastructure is in the midst of its most radical overhaul since the formation of the modem intelligence community following World War II. The Intelligence Reform and Terrorism Prevention Act of 2004,1 the political compromise resulting from the nation's post-September 11 intelligence soul searching, has fundamentally transformed the U.S. intelligence bureaucracy. Yet the policy debate to date has paid insufficient attention to whether the fifty-eight-year-old mandate of the Central Intelligence Agency (CIA) requires amendment in light of the contemporary fight against terrorism. A primary impetus for reform of the U.S. intelligence infrastructure was the breakdown of critical distinctions upon which the division of labor among national security agencies is based. The current national security context and the war on terrorism have blurred the line between intelligence and law enforcement, and it has become hackneyed to note that terrorist plots do not observe the foreign and domestic divisions that exist in the jurisdictional duties of U.S. agencies. Still an important area of analysis has so far escaped any serious public debate or legislative attention: Do the limits of CIA authority outlined in the National Security Act of 19472 meet the needs of the modem national security environment? Policymakers should revisit the CIA's statutory mandate in light of the current struggle against terrorism in order to clarify the limits of CIA authority. t J.D. expected 2005, Yale Law School; M.P.A. expected 2005, Woodrow Wilson School of Public and International Affairs, Princeton University.
    [Show full text]
  • The Failures of Intelligence Reform
    Coastal Carolina University CCU Digital Commons Honors College and Center for Interdisciplinary Honors Theses Studies Fall 12-15-2012 The aiF lures of Intelligence Reform Amber Ciemniewski Coastal Carolina University Follow this and additional works at: https://digitalcommons.coastal.edu/honors-theses Part of the Political Science Commons Recommended Citation Ciemniewski, Amber, "The aiF lures of Intelligence Reform" (2012). Honors Theses. 52. https://digitalcommons.coastal.edu/honors-theses/52 This Thesis is brought to you for free and open access by the Honors College and Center for Interdisciplinary Studies at CCU Digital Commons. It has been accepted for inclusion in Honors Theses by an authorized administrator of CCU Digital Commons. For more information, please contact [email protected]. The terrorist attacks on September 11, 2001 were a devastating shock to the United States. They alerted Americans to the new threat of non-state actors. National Security had been severely damaged, and the new threat provoked the U.S. to enter into a problematic war in the Middle East region. Immediately after the attacks, the “blame game” began. Though there are seventeen organizations in the United States intelligence community, the Central Intelligence Agency (CIA) and the Federal Bureau of Investigation (FBI) suffered the worst criticism for their roles in failing to prevent the attacks. The Bush administration established the 9/11 Commission in order to investigate what went wrong and to determine how to fix it. Based on the recommendations provided by the Commission, various organizations were changed and/or created in the intelligence community. Out of many changes, two were the most significant.
    [Show full text]