Frustrating Evolution of the Defense Intelligence Agency
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Ann Arbor, MI 48106 THE FRUSTRATING EVOLUTION OF THE DEFENSE INTELLIGENCE AGENCY by Elizabeth Jeszenszky submitted to the Faculty of the School of International Service of The American University in Partial Fulfillment of the Requirements for the Degree of Master of Arts in International Affairs Signatures of Commi Chair Dean of the School of International Service Date 1992 The American University Washington, D.C. 20016 7407 ffES AMERICAN UNIVERSITY LIBRARY ® COPYRIGHT by Elizabeth Jeszenszky 1992 ALL RIGHTS RESERVED THE FRUSTRATING EVOLUTION OF THE DEFENSE INTELLIGENCE AGENCY BY Elizabeth Jeszenszky ABSTRACT In 1961, the Defense Intelligence Agency (DIA) was established to meet the foreign military and military-related intelligence requirements of the Secretary of Defense, the Joint Chiefs of Staff (JCS), the Unified and Specified (U&S) Commands, and other components with defense intelligence needs. DIA has had difficulty fulfilling this mission, however, because many intelligence consumers perceive DIA as a second-rate organization. DIA's struggle to become the nationally recognized leader of military intelligence stems from its turbulent beginnings. Resistance by the three armed services, personnel problems, mission complexity, and organizational matters are the core issues that contributed to DIA's initial difficulties. To affect positive change, defense decisionmakers need to understand DIA's history and provide solutions for these troublesome areas. Unfortunately, minimal literature exists about the DIA; therefore, this thesis is a compilation of interviews and information gleaned from various intelligence books, journals, and Congressional documents. Today, the end of the Cold War and the declining defense budget is forcing the entire Intelligence Community to undergo an in-depth reorganization. Thus, DIA has an opportunity to continue to make substantial improvements. This thesis reviews DIA's history, traces its recurring problems, and offers prescriptions for DIA's future. The DIA has the potential to be the premier military intelligence authority, but restructuring efforts must address its core weaknesses. ii TABLE OF CONTENTS Chapter 1. INTRODUCTION 1 2. LITERATURE REVIEW 11 3. THE HISTORY OF THE DIA 19 Post WWII Intelligence and the National Security Act Studies of the 1950s The Making of the Defense Intelligence Agency 4. INITIAL PROBLEMS 35 Service Resistance Personnel Wars Complex Mission - Production Complex Mission - Customers DIA's Organizational Structure and Resources 5. A DECADE OF CRITICISM 61 The Fitzhugh Report The 1970 Reorganization The Pike Committee Report The Church Committee Report 6. DIA MAKES STRIDES 81 Service Resistance Personnel Issues Complex Mission Organization and Structure 7. REORGANIZATION IN A NEW ERA 103 The End of the Cold War Desert Shield/Desert Storm Lessons Learned The DOD Plan for Restructuring Defense Intelligence Congressional Actions DIA's Internal Reorganization 8. REFORM PRESCRIPTIONS 119 Service Resistance Personnel Issues Complex Mission and Customer Support In Conclusion 9. SOURCES CONSULTED 128 CHAPTER ONE INTRODUCTION Within the U.S. Intelligence Community, the Defense Intelligence Agency (DIA) is often regarded as less than equal. Established in 1961 by Department of Defense (DOD) Directive 5105.21, DIA's mission was to "satisfy the foreign military and military-related intelligence requirements of the Secretary of Defense, the Joint Chiefs of Staff (JCS), the Unified and Specified (U&S) Commands, other Defense components, and, as appropriate, non-Defense agencies."1 In addition, DIA was chartered to provide the military intelligence input to National Intelligence Estimates, and to lead the military intelligence community. Despite DIA's apparent status, this agency has continuously fought an uphill battle to be accepted as the primary authority for military intelligence matters. Among the dozen or more intelligence organizations that comprise the U.S. Intelligence Community, the primary all-source analytical agencies are the Central Intelligence Agency (CIA), the DIA and the State Department's Bureau of Intelligence, (INR). Although all three play a major role, DIA has long been 1 DIA, "History of the Defense Intelligence Agency," (Washington, D.C.: DIA Publication, 1985), no page numbers. l regarded as the weakest of the three. Why is DIA often perceived as a second-rate agency? If DIA's poor reputation is warranted, where did its problems begin? Can DIA join the ranks of CIA and State, or is it fated to function on the margins? I first became interested in these questions after taking a graduate class taught by Professor Duncan Clarke. He mentioned some of the problems that DIA has had over the years, and he provided several prescriptions for reform. As a former Army intelligence officer, I had worked with several DIA products, and at my level I was unaware of any turmoil surrounding DIA. Thus, DIA's reputation varies from customer to customer. Indeed, quality is a subjective judgement based on a multitude of factors. There is no standard scale by which to measure an intelligence agency. The fact that most of the products are classified makes this a more arduous task. Reputation does play a role in assessing the effectiveness of an agency, however, comparing the quality of the DIA to the CIA or the INR is similar to comparing the quality of the New York Times to the Washington Post. DIA does have a reputation problem, but that is not the central focus of this thesis. Instead, this thesis traces DIA's struggle to become the nationally recognized leader of military intelligence from its turbulent beginnings to the present day. One former DIA Director referred to the creation of DIA as an agency "founded in frustration."2 Several factors contributed to this initial frustration: resistance by the three armed services, personnel problems, mission complexity, and organizational difficulties. The combination of these elements has hindered DIA from effectively achieving its full potential. Understanding DIA's tumultuous background is especially significant today, since the end of the Cold War and the rapidly declining defense budget are forcing planners to restructure U.S. intelligence support. If real improvements are to continue to be made, it is imperative that decisionmakers reflect on lessons learned from the past. DIA has the potential to be the accepted leader of the military intelligence community, but it is still often characterized as a second-rate agency. To address these issues, my paper comprises three main sections. The first section is a history of DIA. The second segment reviews several critical reports that evaluated DIA's progress a decade after its formation. The final pages discuss the present-day intelligence reorganization measures, and suggestions for reform. By tracking DIA's evolution, I will show why DIA has had difficulty becoming the premier authority of military intelligence. 2. Lt Gen. James Williams, Interview by Author, former DIA Director, 3 April 1992, Bethesda, MD. Literature Review Since the CIA is a high-profile agency, it attracts the majority of the media and research attention. In contrast, very little has been published about DIA's history or performance. Chapter Two is a brief literature review that examines the material available in various books, journals and documents regarding intelligence. Since the literature is sparse, most of my research efforts consisted of interviews with former intelligence officials from DIA, CIA, INR and the Services, members of the Office of the Secretary of Defense (OSD) and Joint Chiefs of Staff (JCS), Congressional staff personnel, academia, and the media. By combining the meager literature and the documentation from Congressional reports, with the data from over thirty interviews, my study