Combating Proliferation of Weapons of Mass Destruction
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Combating Proliferation of Weapons of Mass Destruction Report of the Commission to Assess the Organization of the Federal Government to Combat the Proliferation of Weapons of Mass Destruction Pursuant to Public Law 293, 104th Congress Commission to Assess the Organization of the Federal Government to Combat the Proliferation of Weapons of Mass Destruction P.O. Box 18205 Washington, D.C. 20036-8205 (202) 331-4060 Fax (202) 296-5545 July 14, 1999 Chairman The Honorable Trent Lott John M. Deutch Majority Leader United States Senate Vice Chairman Arlen Specter Washington, D.C. 20510 Commissioners Anthony C. Beilenson Dear Mr. Leader: Stephen A. Cambone* M.D.B. Carlisle In accordance with the Intelligence Authorization Act for Fiscal Year 1997 Henry F. Cooper J. James Exon (P.L. 104-283) and the Omnibus Consolidated and Emergency Supplemental Robert L. Gallucci** Appropriations Act of 1999 (P.L. 105-277), we hereby submit the report of the Dave McCurdy Commission to Assess the Organization of the Federal Government to Combat the Janne Nolan Proliferation of Weapons of Mass Destruction. Daniel Poneman William Schneider, Jr. The Commission was established in January 1998 to perform its Henry D. Sokolski assessment and report to Congress on specific administrative, legislative, and other changes it believes would improve U.S. performance in combating proliferation. Executive Director Suzanne E. Spaulding It has been an honor to serve. Respectfully submitted, John M. Deutch Arlen Specter, Chairman Vice Chairman Anthony C. Beilenson Stephen A. Cambone* M.D.B. Carlisle Henry F. Cooper J. James Exon Dave McCurdy Janne Nolan Daniel Poneman William Schneider, Jr. * nominated Henry D. Sokoloski ** resigned Enclosure Commission to Assess the Organization of the Federal Government to Combat the Proliferation of Weapons of Mass Destruction P.O. Box 18205 Washington, D.C. 20036-8205 (202) 331-4060 Fax (202) 296-5545 July 14, 1999 Chairman The Honorable Tom Daschel John M. Deutch Minority Leader United States Senate Vice Chairman Arlen Specter Washington, D.C. 20510 Commissioners Anthony C. Beilenson Dear Mr. Leader: Stephen A. Cambone* M.D.B. Carlisle In accordance with the Intelligence Authorization Act for Fiscal Year 1997 Henry F. Cooper J. James Exon (P.L. 104-283) and the Omnibus Consolidated and Emergency Supplemental Robert L. Gallucci** Appropriations Act of 1999 (P.L. 105-277), we hereby submit the report of the Dave McCurdy Commission to Assess the Organization of the Federal Government to Combat the Janne Nolan Proliferation of Weapons of Mass Destruction. Daniel Poneman William Schneider, Jr. The Commission was established in January 1998 to perform its Henry D. Sokolski assessment and report to Congress on specific administrative, legislative, and other changes it believes would improve U.S. performance in combating proliferation. Executive Director Suzanne E. Spaulding It has been an honor to serve. Respectfully submitted, John M. Deutch Arlen Specter, Chairman Vice Chairman Anthony C. Beilenson Stephen A. Cambone* M.D.B. Carlisle Henry F. Cooper J. James Exon Dave McCurdy Janne Nolan Daniel Poneman William Schneider, Jr. * nominated Henry D. Sokoloski ** resigned Enclosure Commission to Assess the Organization of the Federal Government to Combat the Proliferation of Weapons of Mass Destruction P.O. Box 18205 Washington, D.C. 20036-8205 (202) 331-4060 Fax (202) 296-5545 July 14, 1999 Chairman The Honorable J. Dennis Hastert John M. Deutch Speaker of the House of Representatives Washington, D.C. 20515 Vice Chairman Arlen Specter Commissioners Anthony C. Beilenson Dear Mr. Speaker: Stephen A. Cambone* M.D.B. Carlisle In accordance with the Intelligence Authorization Act for Fiscal Year 1997 Henry F. Cooper J. James Exon (P.L. 104-283) and the Omnibus Consolidated and Emergency Supplemental Robert L. Gallucci** Appropriations Act of 1999 (P.L. 105-277), we hereby submit the report of the Dave McCurdy Commission to Assess the Organization of the Federal Government to Combat the Janne Nolan Proliferation of Weapons of Mass Destruction. Daniel Poneman William Schneider, Jr. The Commission was established in January 1998 to perform its Henry D. Sokolski assessment and report to Congress on specific administrative, legislative, and other changes it believes would improve U.S. performance in combating proliferation. Executive Director Suzanne E. Spaulding It has been an honor to serve. Respectfully submitted, John M. Deutch Arlen Specter, Chairman Vice Chairman Anthony C. Beilenson Stephen A. Cambone* M.D.B. Carlisle Henry F. Cooper J. James Exon Dave McCurdy Janne Nolan Daniel Poneman William Schneider, Jr. * nominated Henry D. Sokoloski ** resigned Enclosure Commission to Assess the Organization of the Federal Government to Combat the Proliferation of Weapons of Mass Destruction P.O. Box 18205 Washington, D.C. 20036-8205 (202) 331-4060 Fax (202) 296-5545 July 14, 1999 Chairman The Honorable Richard A. Gephardt John M. Deutch Minority Leader United States House of Representatives Vice Chairman Arlen Specter Washington, D.C. 20515 Commissioners Anthony C. Beilenson Dear Mr. Leader: Stephen A. Cambone* M.D.B. Carlisle In accordance with the Intelligence Authorization Act for Fiscal Year 1997 Henry F. Cooper J. James Exon (P.L. 104-283) and the Omnibus Consolidated and Emergency Supplemental Robert L. Gallucci** Appropriations Act of 1999 (P.L. 105-277), we hereby submit the report of the Dave McCurdy Commission to Assess the Organization of the Federal Government to Combat the Janne Nolan Proliferation of Weapons of Mass Destruction. Daniel Poneman William Schneider, Jr. The Commission was established in January 1998 to perform its Henry D. Sokolski assessment and report to Congress on specific administrative, legislative, and other changes it believes would improve U.S. performance in combating proliferation. Executive Director Suzanne E. Spaulding It has been an honor to serve. Respectfully submitted, John M. Deutch Arlen Specter, Chairman Vice Chairman Anthony C. Beilenson Stephen A. Cambone* M.D.B. Carlisle Henry F. Cooper J. James Exon Dave McCurdy Janne Nolan Daniel Poneman William Schneider, Jr. * nominated Henry D. Sokoloski ** resigned Enclosure Contents Page Executive Summary v Introduction Commission Charges and Procedures vii Chapter 1. A Grave Threat to the United States 1 Chapter 2. Combating Proliferation: What the Federal Government Should Do 5 Chapter 3. Managing the Interagency Process 19 Resources and Program Evaluation 19 Technology Acquisition 24 International Cooperative Efforts 30 Chapter 4. Export Controls 37 Chapter 5. Findings and Recommendations for Executive Branch Agencies 43 Common Agency Issues 43 Department of State 47 Department of Defense 53 Department of Energy 62 Intelligence Community 66 Department of Commerce 72 Other Agencies 76 Department of the Treasury 76 Department of Justice 80 Federal Bureau of Investigation 84 Departments of Health and Human Services and Agriculture 89 Appendices A: Commission History and Charter Legislation 95 B: Commission Members and Staff 103 C: Individuals Interviewed by the Commission 107 iii Page D: Baseline Survey of Proliferation-related Activities 129 E: Proliferation-related Interagency Coordination Groups 133 F: Proliferation-related Reporting Requirements 139 G: Resource Allocation—Budget Sub-function 05x 147 H: Technology Acquisition 155 Additional Views Of J. James Exon 169 Of M.D.B. Carlisle, Stephen Cambone*, Henry F. Cooper, William Schneider, Jr., and Henry Sokolski 173 Annex: Organizational Overviews Executive Office of the President 1 Department of State 25 Department of Defense 42 Department of Energy 59 Nuclear Regulatory Commission 68 Intelligence Community 73 Department of Commerce 79 Department of the Treasury 88 * nominated iv Executive Summary Every American should understand that weapons of mass destruction (WMD)—nuclear, biological, and chemical weapons and their means of delivery—pose a grave threat to the United States and to our military forces and our vital interests abroad. The most serious threats are: • Terrorist use of weapons of mass destruction against the United States or its allies; • Possession of, and the manufacturing infrastructure for, WMD by Iran, Iraq, North Korea, or other unfriendly states; • Diversion of WMD-related weapons, technology, materials, and expertise from Russia; • Transfer of nuclear, chemical, and biological weapons, delivery means, and technology by China; and • Destabilizing consequences of WMD programs in the Middle East, South Asia, and East Asia. These threats define a chilling new reality for our country. Their magnitude and reality require a new strategy focused not just on prevention, but also on combating all aspects of proliferation, to include impeding the spread of capability, responding to proliferation as it occurs, strengthening our capacity to defend against such weapons, and preparing to respond if these weapons are used against us at home or abroad. Congress established this Commission to assess the organization of the Federal Government with regard to WMD proliferation and to make recommendations for improvements. The task is formidable. Proliferation is related to catastrophic terrorism, infrastructure protection, and espionage. Many separate government agencies that have overlapping jurisdiction are involved. Combating proliferation requires actions both at home and abroad, both unilateral and with other nations and international organizations. The Commission finds that the US Government is not