Open Source Information - A True Collection Discipline
Kimberly Saunders
G1332
Thesis Master of Arts (War Studies) Royal Military College of Canada
Defended: 20 April2000
This thesis may be used within the Depriment of Nalional Defence but copyright for open publication remains rhe property of the author. National Library Bibliothèque nationale 1*1 of Canada du Canada Acquisitions and Acquisitions et Bibliographic Services services bibliographiques 395 Wellington Street 395. rue Wellington Ottawa ON K1A ON4 OttawaON K1AON4 Canada Canada
The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant à la National Librq of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sell reproduire, prêter, distribuer ou copies of this thesis in microform, vendre des copies de cette thèse sous paper or electronic formats. la forme de rnicrofÏche/film, de reproduction sur papier ou sur format électronique.
The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fkom it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. ABSTRACT
"Open Source Information - A True Collection Discipline" examines the Arnerican and Canadian use of unclassified. publicly available information- This study includes a detailed review of how open source information is defined. what it is and where it is to be found. This is followed by concrete examples demonstrating the vaiue of open source information and its use by intelligence services.
Following a bnef description of what intelligence is and the various intelligence products of the Canadian Security Intelligence Service. this study reviews the development of the use of open source information in the United States and Canada. Beginning with the American Coordinator of Information, created before the United States entered the Second World War. the study examines the use of open source information by the Office of Strategic Services. and various current initiatives within the Arnerican intelligence cornmunity. Several government and private sector reports are reviewed, indicating how open source information was being used - or not being used - and the various recommendations they presented. The Cornmunity Open Source Prograrn initiative and the Foreign Broadcast Information Service are explained.
The study then tums its attention to Canada, commencing with the 1981 report by the MacDonald Commission. A comprehensive study of reports noting the use of open source information by the Canadian Security Intelligence Service follows, including one detailed private sector study. The comments and recornmendations of the Security Intelligence Review Cornmittee are documented, as are comments made in subsequent reports by the Parliament of Canada. Interviews with the Director and Deputy Director of the Canadian Security Intelligence Service provide information on the current use of open source information. as do several public speeches by various officiais in the Service.
The study concludes with two recommendations: that a true open source information collection discipIine be created. and that open source working groups be fully integrated into both the analytical and operational branches of intelligence services.
Footnotes indicate references to the various texts from which comments were taken. A bibliography is appended. TABLE OF CONTENTS
FOREWARD AND ACKNOWLEDGEMENTS iNTRODUCTION Open Source Use - History and Context Review of Contemporary Literature Parameters of This Study Endnotes
CHAPTER 1 - OPEN SOURCE INFORMATION Open Source Information Explained Open Source Ternis Open Source Definitions Open Source - Information and Intelligence Collection Anal y sis Conclusion Open Source Information Resources Open Source Production Government Foreign Broadcast Information Service - FBIS Public and Private Companies Universities Think-Tanks Associations and Organizations Media Grey literature Open Source Distribution Traditional Internet Commercial Online Information Providers Experts / Specialists Conclusion Percentage of Open Source Information Used The Value of Open Source Information Ensure Efficient Use of Finances and Resources Corroborate and Confirm or Refute and Deny Information Supplement and Enhance Existing Information Provide New Information Avoid Bias and Mirror-imaging Provide Context Protect Classified Sources and Operational Methodology Protect Persona1 Freedoms, Reduce Intrusiveness Lower Classification and Widen Distribution The Disbelievers Conclusion Endnotes
CHAPTER 2 - INTELLIGENCE PRODUCTION Intelligence - What It 1s Intelligence - Definitions Intelligence Cycle Information Requirement Collection Collection Disciplines Analysis Dissemination CSIS Intelligence Products Conclusion Endnotes
CHAPTER 3 - UNITED STATES & OPEN SOURCE INFORMATION Office of the Coordinator of Information Office of Strategic Services - Research and Analysis Branch Cold War Post Cold War Preparing for the 2 1st Century In Frorn the Cold The Future of US Intelligence Community Open Source Program Current Open Source Initiatives Central Intelligence Agency - Directorate of Intelligence CIA - Annual Report 1 998 JIC Trans and USPACOM Foreign Broadcast Information System - FBIS Conclusion Endnotes
CHAPTER 4 - CANADA & OPEN SOURCE INFORMATION CSIS - Creation and Mandate The McDonald Commission Centre for Conflict Studies Security Intelligence Review Cornmittee SIRC Annual Report - 1984-85 SIRC Annual Report - 1985-86 SIRC Annual Report - 1986-87 SIRC Annual Report - 1987-88 SIRC Annual Report - 1988-89 SIRC Annuai Report - 1989-90 SIRC Annuai Reports - 1990 to 1998 SIRC Annuai Report - 1998-99 SIRC - General Cornments Reports and Studies PeopIe and Process in Transition - 1987 In Flux: But Not in Crisis - 1990 Auditor General of Canada - Chapter 27 - 1996 Kelly Commission - 1999 CSIS - Public Reports CSIS - Current Use Conclusion Endnotes
CHAPTER 5 - FINDINGS. RECOMMENDATIONS & CONCLUSION Findings Recornmendations Open Source Information - A Tme Collection Discipline Open Source Information - Integrated Tearning Conclusion Endnotes
BIBLIOGRAPHY
GLOSSARY OF ACRONYMS FOREWARD AND ACKNOWLEDGEMENTS
The impetus for this study was the discovery that there was no comprehensive overview of open source information. Moreover. there was very littIe discussion in Canada on the use of open source information by the Canadian intelligence community. In addition. this study was written to dispel the half-truths. myths and misunderstandings about open source information that I came across in my research. This study was thus undertaken to fil1 this knowledge gap. and to gather al1 availabIe information on open source information into one reference book.
It is hoped that this document wiIl increase the recognition of the value of open source information. and promote the creation of a recognized open source collection discipline that is a vital and integral component of every inteIligence service. This study was written for those who are studying and working in the intelligence field. and especially for the many professional collectors of open source information.
The support and patience of many colleagues and friends has made this study possible. In particular, 1 would like to thank M. J. Dunn for her advice and recommendations, and for being as enthusiastic as 1 was about each new development and discovery. Her never- ending willingness to listen to my ideas provided a much appreciated sounding board. 1 would also like to thank my supervisor for this study, Dr. G. Davidson Smith. Without his initial support of this thesis proposal, and his w-illingness to work with me in exploring this topic. this study might never have taken place. Dr. Smith's guidance and his continued attention to detail have ensured the accuracy of this study.
The information in this study is entirely from unclassified. open sources.
Kimberly Saunders
Ottawa, Aprïl2000 INTRODUCTION
The role of an intelligence service is to produce intelligence. This intelligence presents decision makers in govemment with accurate. timely and reliable information about activities which may constitute a threat to national security. The use by intelligence services of publicly available, unclassified information - known as open source
Nlformarion - is an ongoing subject of debate. Questions are posed as to the extent that open source information is used. and by whom it should be colIected. While various authors quote the percentage of open source information that is included in the intelligence product. this ignores the real issue of the value of open source information to the intelligence product. While open source information is mentioned with growing frequency in relation to intelligence services, the collection of open source information is often done in a haphazard manner by those who are not trained in open source collection.
Moreover. the open source units that do exist appear to be segregated from the operational side of intelligence work.
Open Source Use - Wistory and Context
The use of open source information in the intelligence process is not new. Travellers. businessmen and emissaries have for centuries brought information back to their rulers, information garnered €rom local customs and attitudes, local news and general conversation. Academics have been consulted, and foreign press has been monitored to glean information on various topics. During the Second World War, the Ofice of
Strategic Services - the forerumer to the Central Intelligence Agency - was created. in part. to analyse open information and to produce intelligence reports for the Amencan president. One role of the British Special Operations Executive during the Second World
War was to have agents located in countries under enemy occupation to report on what was in the local press. supply navigational aids such as local maps, and locate detailed local information such as train schedules. Al1 of this was obtained from publicly available information. This open source information was then added to classified information acquired from human sources and communication intercepts, to complete the intelligence product. In a 1947 submission to the American Senate Armed Services Cornmittee, Allen
Dulles wrote that:
In time of peace the bulk of intelligence can be obtained through overt channels, through our diplomatic and consular missions, and our military, naval and air attachés in the normal and proper course of their work. It can also be obtained through the world press. the radio, and through the many thousands of Americans, business and professional men and American residents of foreign countries, who are naturally md normally brought in touch with what is going on in those countries.'
During the middle of the twentieth century, the nature of intelligence collection undenvent a change. Many countries becarne closed and secretive, showing a reticence to release any information, not only about their government but general information about their country.
What information was released was often propaganda that was intended to mislead and misinform its readers. The closure of borders and the restriction of access to accurate and reliable information about a country resulted in a greater reliance on information obtained through clandestine operations, such as human intelligence. and various electronic intelligence such as signals intelligence and communications intelligence. The use of open source information fell by the wayside. The result was that intelligence services became structured around the collection and analysis of classified information obtained through covert means. and intelligence analysts saw little or no value in acquiring and using any unclassi fied information O btained from open sources.
The end of the twentieth century saw many changes in both intelligence sewices and intelligence analysis. including an increase in the use of open source information in the intelligence product. There are several reasons for this. First. the collapse of the Iron
Curtain brought about a new openness in many of the countries that had been closed and secretive. and the information that could previously only be obtained through secretive means was now readily available. There was no longer a need to obtain al1 the information required through covert operations or to use onty classified information. Furthermore. the issues being examined by intelligence services changed. No longer focussing on single countries. many issues became transnational in nature, such as economic espionage, organized crime and information operations. As well, information on these topics became increasingly more available in the public domain.
Another factor which resulted in an increase in the use of open source information, is the improvement in technology and an increase in its use, coupled with a rapid augmentation in the amount of information that is available. As more countries become technologically capable. more information is made available, and more people are able to access that sarne information. This results in an often instantaneous transfer of information, regardless of borders or nationalities.
Added to this flood of information is the issue of fiscal restraint. with government departments and agencies having their budgets reduced and their work loads increased.
This encompasses al1 of government. including intelligence services. Covert operations and the clandestine collection of secret intelligence are expensive and resource intensive. The availability in the public domain of reliable, accessible and timely information - especially through the Intemet or sophisticated commercial services - means that limited finances do not need to be spent exclusively on expensive covert methods. As was indicated by the
American Community Open Source Program, "Enlightened use of open sources allows us to do the job better and to reserve more expensive, higher risk, clandestine collection options for othenvise unobtainable information.'''
Review of Contemporary Literature
The articles and books discussing the use of open source information by intelligence services are not numerous. Generally, in books on intelligence services or intelligence issues. the topic of open source information is not listed in the index, even though open source might be mentioned in the publication. In these cases, however, open source is generally explained away in one paragraph or less. On rare occasions, open source has appeared in a table of contents, but only as a small section where detailed information on
what open source is and where it is collected are missing. Chapters examining collection of information and intelligence almost never include a discussion on open source
information. and if it is mentioned. it is in one or two lines indicating that analysts include open source information in al1 source intelligence products. There are a certain number of articles that discuss the use of open source. Some are very informative and contribute greatly to the discussion. although there are a number that obfuscate the issue by adding confusion as to what open source is and how it should be used. As well. there are some
important statements regarding the use of open source information buried within these documents.
The only book dedicated to studying the use of open source information is Sharing the
Secrefs: Open Source Intelligence & The War on Drugs, prepared by J. F. Holden-
Rhodes. Sponsored by the commercial online vendor LexisINexis and the Arnerican open source promoter Robert Steele. this book presented a study in which open source information was used to examine the US policy on drugs. and the state of drug trafficking in the western hemisphere. Holden-Rhodes wrote Sharing the Secrets to prove that open source was the keystone of the "new 'intelligence' for today and the future.''3 His conclusion was that intelligence as it stands now was no longer valid, but that unclassified open source information, cornbined with various policing capabilities would be sufficient tools in the fight against drugs. Parameters of This Study
As to the study on open source information contained herein, the purpose is to present an overview of what open source information really is, who produces it and where it can be found. In addition. this paper is intended to dispel the myths and half-truths that currently exist in the literature that discusses open source information. Furthemore, this study presents the various arguments that support the recognition of open source information as an important collection discipline that warrants its own collectors. Finally, this study purports to show that an intelligence service shoutd have an open source information unit which should be a vital and integral component of the intelligence process. Throughout this paper. the primary focus will be on Canadian examples.
This study is neither an analysis as to the accuracy of the intelligence product nor an exarnination of its various shortcomings, as has been documented in various books and articles. In addition, it is not a debate on whether or not open source is better than, or should be used to the exclusion of. classified information or information collected through covert means. This study does not present a cornprehensive exarnination of the American and Canadian intelligence communities, and whether or not intelligence services are required. It is assumed that intelligence services are required, and that both open source and classified information are necessary components of an al1 source inteIligence product. Chapter One examines open source information. An in-depth study is made of the various terms and definitions, encompassing both the American and Canadian perspectives, and explaining the confusion that exists between open source information and open source intelligence. The second section looks specifically at what matenal is considered to be open source. who produces it, and the various means by which open source matenal can be obtained. The percentage of open source used in the intelligence product is examined, as has been cited during the 20thcentury, followed by a more meaningful look at how open source information is of value in the intelligence product. Examples are included to show the value of open source information.
Chapter Two is a brief overview of what intelligence is, including definitions of both intelligence and strategic intelligence. A review is presented of the components of the intelligence cycle and the various intelligence collection disciplines. The range of intelligence products prepared for the Canadian Government by the Canadian Security
Intelligence Service are described.
Chapter Three examines the history of open source use in the United States. Begiming with the Coordinator of Information prior to the entry of the United States into World
War II, the chapter also inchdes an examination of the Research & Analysis branch of the
Office of Strategic Services. Following a bnef look at the impact of the Cold War on open source collection, three post-Cold War reports on intelligence are studied. Specifically,
Preparingfor the 2lsi Cenlury by Harold Brown and Warren Rudman, In From the Cold by Allan E. Goodman. Gregory Treverton, and Philip Zelikow. and The Future of US intelligence by Abram N. Shulsky and Gary Schmitt are exarnined for their criticai comments on the use of open source information in the United States. The 1992 creation of the Community Open Source Program OfCice is detaited. followed by a look at a selection of current open source initiatives in the United States. The chapter concludes with a special section noting the Foreign Broadcast information Service (FBIS). and its important contribution to open source information.
Chapter Four is devoted to the study of open source in Canada, specifically to the use of open source information by the Canadian Security Intelligence Service (CSIS). Starting with an examination of the Commission of inquiry Concerning Certain Activities of the
Royal Canadian Mozinted Police, the study then examines the open source unit mode1 prepared by the Centre for Conflict Studies. Following this is a review of the annual reports by the Secunty Intelligence Review Cornmittee (SIRC) and the strong recommendations made by SIRC regarding the necessity of the use of open sources by
CSIS. Subsequently, several reports are examined for their comments on the use of open source. including People und Process in Transition. the report of the five-year review In
Flux: But Nor in Crisis, the Auditor General of Canada's **TheCanadian Intelligence
Cornmunity: Control and Accountability," and the 1999 Kelly Commission report. The
CSIS Public Reports from 199 1 - 1998 are exarnined, followed by a section of the current use of open source information by CSIS. Chapter Five presents findings of this study, and proposes two recommendations. This chapter will recommend the recognition of the importance of open source collection. This includes the establishment of an infrastructure that wiIl aIlow for the creation and maintenance of a true open source collection discipline. A second recommendation discusses the potential of integrating the collection of open source information, and the open source unit. into the intelligence process. This recommendation would see the open source unit working closely with the operational branches.
Endnotes
1 . COS PO. intelligence Cornrnunity Open Source Strategic Plan 1998-2002 (Washington. DC: COSPO 1998) p. 24.
2. Ibid., p. iii.
3. J. F. Holden-Rhodes. Sharing the Secrets: Open Source Intelligence and The War On Drugs, (Westport. CT: Praeger. 1997) p. viii. CHAPTER 1 -OPEN SOURCE INFORMATION
Open Source Information Explained
in general. there is a consensus that open source is unclassified information. There are slightly different indicators as to what type of information is included, but these are nuances on the basic understanding that it is information that has no securiîy classification level - such as Confidential, Secret or Top Secret - and that is publicly available. As noted by the Amencan Comrnunity Open Source Program Office:
1 am sure you [the reader] have already gathered that open source information is something you have been using for most of your careers. You may not have thought of it by that terrn. Frorn world-wide newspapers, periodicals and special reports, to television, radio. commercial satellite imagery and emerging multi-media, you have been dealing in the open source arena for most of the input to your evaluations and products.'
Open Source Terms
Often. open source is called just that. However. various terms are used in addition to open source, and the following have been culled from the literature:
information obtained from open sources open information information from open sources open information sources information gleaned from open sources open source non-secret information open sources Open Source Information - A True Collection Discipline
unclassified information open-sources public information open source information publicly available information open intelligence information gathered publicly open source intelligence white intelligence (Poland) overt information overt intelligence
The rarely seen white intelligence is defined as "Polish tradecraft jargon for intelligence
processed from overt or open sources.'?'
Open source information can be shortened into the following abbreviations:
OS1 - open source information OSINF - open source information OSINT - open source intelligence OSCNT - open source intelligence
Open Source Definitions
Open source information incIudes al1 unclassified information, and may be information that
is readily available to the general public, information that is pnvately published' or
information that is limited in its public distribution and availability. As information which is
readily available to the pubiic, open source includes items such as books, newspapers,
periodicals. news and reports, be they published by a govement, a company, an organization or an individual. These items are available in print, on cd-roms or diskettes, and in numerous electronic formats. Open Source Information - A True Collection Discipline
Grey literatilre is a variety of open source information which is not readily or easily available. This type of information usually is privately published and has a limited distribution outside the conventional channels. The lirnited distribution could be due to a small print run or a limited audience rather than a reluctance to have the material in the public domain. The result however, is that grey literature can be quite difficult to locate.
Many entries in various books. articles and reports mistakenly define open source by presenting a limited number of examples of where it is found, such as indicating that open source is the newspaper. and with increasing frequency, by equating open source to the
Internet. However. several official definitions are available for open source. In the United
States. the official definition for the Amencan intelligence community was noted in the
Director of Central Intelligence's Directive 2/12. It stated that:
Open source information for purposes of this directive is publicly available information (i.e.. any member of the public could Iawfully obtain the information by request or observation), as well as other unclassified information that has limited public distribution or access. Open source information also includes any information that may be used in an unclassified context without compromising national security or intelligence sources and methods.'
In this definition, the Arnericans included the main component - that the information be publicly available - and added that it could include grey literature, as traditionally defined. Information could also corne from the intelligence community itself, if it could be Open Source Information - A Tme Co[lection Discipline
used "without compromising national security or intelligence sources and methods." This
indication does not appear in other definitions of open source.
Leo D. Carl. in his series of dictionaries on intelligence, provided several definitions for
open source. The first was in his 1990 hfernational Dictionary of Intelligence:
"intelligence, overt: a collection aspect of intelligence that is based on information
gathered by means recognized as legal and permissible under the pnnciples of international
law or custom and ~sage."~In discussing open source as a "collection aspect," Carl
seemed to have been refemng to open intelligence as one of the many collection disciplines - such as HUMINT (Human Intelligence) or RADINT (Radar Intelligence) - that exist within the intelligence field. The focus is on how the information is collected,
rather than the fact that the information is not classified.
Cd's 1996 The CIA Insider s Dictionary had several entries on open source. He defmed
open source collection. open source information itself and a1so included the phrase "open
sources."
open-source collection: term for intelligence information collected from overt or open sources.
open-source information: official intelligence-cornmunity (IC) definition: 'A generic term describing information of potential intelligence value (Le., intelligence information) which is available to the general public.' See also open sources. Open Source Information - A True Collection Discipline
open sources: tradecrafi jargon for overt sources of information available to the public at large. AIso defined as overt sources of unclassified infoxmation such as newspapers and peri~dicals.~
This iater range of definitions by Car1 explained open source infonnation with greater clarity. as well as marking the distinction between open source information and open source collection. It appears to be quite common that open source is defined either by what material it is understood to be (such as newspapers or the Intemet) or by the methods of collecting the infonnation (legal and open).
A 1997 definition of open source in Spy Book: The Encyclopedia of Espionage should be arnended to correct both its inaccuracies and its iimited view:
Open Source: Intelligence derived from sources available to the public. especially from news media. In the late 1980s the abbreviation-obsessed U. S. INTELLIGENCE COMMUNITY began using the acronym OSINT for Open Source Intelligences7
While it might be agreed that the Amencan intelligence community is indeed
"abbreviation-obsessed," it cannot be agreed that the main source ("especially") of public information is the news media, and it cannot be agreed that open source is intelligence derived from public sources. First, there are so many sources of information in the public domain, it could hardly be said that the news media is the primary source where the majority of information is located. A great deal of the information in media stories Open Source Information - A True Collection Discipline originated in other sources. Much of this is open source information which has been compiled from other publicly available resources such as governrnent information,
Company and organization reports, or academic studies published in journals.
Furthemore. while open source information may be used in the intelligence product, and is thus part of the information from which intelligence is derived. properly speaking, the open source material itself is not necessarily intelligence.
Earlier definitions of open source cm also be found. In the 1949 classic Strategic
Intelligence for Arnerican World Policy, Sherman Kent - a keen supporter of the use of open source in the intelligence product - described overt information as follows:
You study the current published technical literature, or you read the foreign press, or you listen to the official broadcasts of foreign radio stations, or you walk down the streets of a foreign city (with no attempt to conceal your identity) and observe what is going
In his 1963 book The Cru$ of Intelligence, the former director of Central Intelligence,
Allen Dulles. wrote that "overt intelligence [...] is information derived from newspapers, books, learned and technical publications, official reports of governrnent proceedings, radio and tele~ision."~Dulles was an avid supporter of using open source as part of the al1 source intelligence product. In light of this, when the Senate Armed Services Cornmittee was holdings hearings on the National Defense Establishment, Dulles accepted their invitation to speak?doing so on 25 April 1947. It is fiorn this testimony that his definition Open Source Information - A True Collection Discipline of open source appears. Both Kent and Dulles defined open source information by providing exarnples of what it is. However. contrary to many narrow lists of open source resources that exist today. Kent and Dulles described a broad range of local and foreign items. as well as a full range of media (radio, television and print).
Dr. Abram Shulsky. a well-known author on security and intelligence issues, included sections on the use of open source information in his 1993 book Sileni Warfare. Shulsky described open sources as "newspapers. books, radio, and television broadcasts and any other public source of inf~rmation."'~Further on, Shulsky indicated specific examples of openly available information: "road and railroad maps and timetables, newspaper and magazine articles, govenunent economic and statistical reports, and even old travel guides."" This elaboration illustrates the breadth of the types of open source information that are available.
In Canada, basic descriptions of exarnples of open source information can be found throughout the various reports that discuss the use of open source information. An early
Security Intelligence Review Cornmittee report described open sources as "such things as the mass media and scholarly and technical joumals, both Canadian and foreign."" The
1996 Auditor General's report on the Canadian intelligence community referred to "other inforrnation available from conventional sources; for exarnple the print media."" The
Canadian Security Intelligence Service (CSIS) Public Repori 1991 and current CSIS
18 Open Source Information - A Tme Collection Discipline documentation about the intelligence process indicate that open sources include
"newspapers. periodicais. academic journals, foreign and domestic broadcasts, official documents and other published material."'" These quotes are not so much definitions of what open source is but instead are illustrations of types of open source information.
Perhaps the most accurate and inclusive definition of open source was in the report prepared in 1996 by the Commission on the Roles and Capabilities of the American
Intelligence Community. In Preparingfor the 2lst Century: An Appraisal of US
Intelligence. open source was defined as: "publicly available sources, including foreign and domestic broadcast and print media, government or private publications, and information available over computer networks."15 In this definition, the authors of the report did not attempt to define open source beyond "publicly available sources," and in addition. seemed to have realized that the different types of open source wouid be far too numerous to attempt to itemize. They did note that open sources included domestic and foreign information published by different sources (govemment or private sector), information available in different media (electronic, print and broadcast) and that, in addition, open source information was available through the use of computer systems.
This straightfoward definition covers al1 aspects of open source information, and could serve as a standard definition. Open Source Information - A True Collection Discipline
In some articles discussing open sources, the authors attempt to make a distinction between open source information which is free and open source information which must be paid for. For example, the New South Wales Police Service in Australia defined open source information as "information that is. or could be. available for public access. This information may be free or may be provided for a cost from government departments or private organisation^."'^ However. whether the information is obtained free of charge, or at a cost. it is still open source information.
In January 1998, the CIP. Inspector General, Frederick Hitz, dismissed open source as "a collection of newspaper stories."" If he believed open source to be compnsed of newspapers alone. it is not surprising that he was dismissive of open source within the intelligence community.
In addition. there is a misunderstanding with regard to the Internet and open source information. In many speeches and documents on the use of open source by intelligence analysts, there is an assumption that open source is the Intemet, and that having access to the Internet is synonyrnous with having access to al1 the open source information that is available. The 1999 Director of Central Intelligence Annual Report For the United States
Intelligence Cornmunity indicated that al1 analysts would soon have Internet access at their desk tops to ensure their access to open sources. However, while the Internet provides a means of access to a great deal of publicly available information, the Internet is not Open Source Information - A Tnie Collection Discipline
information but merely a provider of access to open source information. Furthemore, it is
only providing access to a lirnited selection of open source and as such is not the sole
provider of al1 open source information.
Open Source -Infarmation and Inteiiigence
There is confusion regarding the distinction between open source information and open
source intelligence. Depending on the context in which they are used. these terms can
either have the same meaning or they can have two quite different meanings. In some
cases. information and intelligence are used interchangeably - as synonyms, even within
the same article or report.
Collection
This muddle stems from several different issues. The first is a straightforward issue of
semantics. In the intelligence field. there are various means of collecting information.
These different types of collection are referred to as g'collection disciplines," and are
referred to as NTs. For example. information collected from human sources (individuals)
is human intelligence or HUMINT, and information collected through the interception of electromagnetic waves is signals intelligence or SIGINT. This information can either be the raw data as it is received from the human source, or as it is intercepted, which has
2 1 Open Source Information - A Tme Collection Discipline been processed into a readable format for an analyst. or a selection of this data based on its applicability to the requirements need of the analyst. For example, the entire conversation of an individual might be transcribed for the analyst to read (the raw data in its entirety). or a triage might be done so that the analyst receives only that part of the conversation which pertains to the issue being examined. The intelligence in this case is the label - the terminology - which is applied to the particular rnethod of collecting information. In this context. open source is viewed as another collection method and is thus called open source intelligence or OSMT. It can be written as OSCINT but this is seen less frequently. In the Amencan intelligence community's definition for overt intelligence, which is OSINT. this distinction was clarified:
Intelligence, overt: ( 1 ) a collection aspect of intelligence that is based on information gathered by means recognized as legal and permissible under the principles of international law or custom and usage; (2) 'information that is collected openly from public or open sources.' Final Report, Senate Select Cornmittee on Governrnent Operations with Respect to Intelligence Activities, 26 April 1976. l8
Furthemore. information collected through clandestine means, as HUMINT or SIGiNT usually are, is referred to as intelligence because of the secretive nature of the information and the covert means of collection. In this context, open source intelligence would be incorrect as a term because open source information is neither secret nor collected through covert operations. Open source exists, by definition, in the public domain and is readily available to anyone using open collection methods. As Sherman Kent noted, Open Source Information - A Tme Collection Discipline
By -overt' 1 mean the technique of finding things out by open and above- board methods such as are used in ail kinds of scientific, commercial. and journalistic pursuits. I mean the kind of technique you might employ if you wanted to make biscuits for the first tirne, or ascertain the market price of a raiiroad stock. In some kinds of intelligence work [...] you can learn a great deal by these overt meth~ds.'~
Another issue with regard to the difference between open source information and open source intelligence is whether the information has been analysed and if so, how. Open source information can be either raw data which has not been analysed or information which has been analysed for a public forum, such as a report found in the Econornist on any number of topics. Open source intelligence, on the other hand, is "intelligence derived from public information - tailored intelligence which is based on information which can be obtained legally and ethically from public sources."" The open source information remains unchanged, but the intelligence product that open source has become a part of is intelligence. As such, it may be called open source intelligence, especially if the product contains only open source information.
The CIA Insider S Dictionary has an entry for basic intelligence:
intelligence, basic: aka descriptive intelligence, q.v. (1) ... in short, complete 'background' or descriptive data which deals with past time and its extension into the present. A distinguishing characteristic of basic Open Source Information - A True Collection Discipline
intelligence is that. more often than not, it draws upon open (overt) sources rather than classified (semi-overt or covert) ones. "
This definition indicated that while open source is part of the basic intelligence product.
open source information alone is not intelligence. Open source has been incorporated into
the product to become a component within basic intelligence.
In Sharing the Secrets. J. F. Holden-Rhodes examined what he narned Open Source
In f elligence :
[Open Source intelligence] is the knowledge crafted from information drawn from the widest possible range of focussed sources. These sources are open in the hllest sense and no clandestine collection methods are used in their acquisition. The collection information is not subject to proprïetary constraints with the exception of copyright related concems."
Holden-Rhodes noted that open source intelligence is from open source information, is
collected without using clandestine coIlection methods, and does not violate copyright
laws. He further indicated that open source is knowledge crafred as "the information that
is grist for OSNT is analysed, evaluated, and crafted into an intelligence product through
the functioning of the Intelligence Production ~~cle."'~This is a recognition that analysis
is a key component to transforming information into intelligence. and more specifically analysis that is within the frarnework of national security. As Shulsky noted in Silent
Warfare. Open Source Information - A True Collection Discipline
No matter how good the collected information is, however, it almost never speaks for itself. In other words, some analysis of the information is necessary for it to be useful when forrnulating and implementing foreign policy or military activities."
Finally. to clarifi another potential confusion of terms. open source information does not refer to the information that a particular government department or branch of govemment rnakes public. The discussion on use of open source information by intelligence services is a separate issue from that of the openness of government to the public, the release of unclassified or declassified information by the government. or access to information requests to the government.
Essentially, regardless of what it is called, it is important to recognize what open source information is and its importance to the al1 source intelligence product. Attempts to make open source information seern more attractive. perhaps more crucial, by revising the teminology used to describe it. will not increase the use of open source information, but will only obfuscate what open source really is and the important issue of why it should be used. As Paul Wallner, the first director of the Arnerican Community Open Source
Prograrn indicated,
You don3 need to worry about what we cal1 it, al1 you need to worry about is what parts of that will help you do your intelligence job better. You need to look at all the information required to do an intelligence job, including the classified stuff. It is information just as open source is information. What makes it intelligence, on the one hand with the classified stuff, is partly how it is collected. In the case of open source that's not an Open Source Information - A Tme Collection Discipline
issue because it is just there. [...]. So it's mox nir to me, you cm cal1 it whatever you want to cal1 it so long as you understand it is open source."
Conclusion
Open source is information that is not classified. It is usually defined by what it is and by
how it is collected. The most accurate definition remains: -'publicly available sources,
including foreign and domestic broadcast and print media, governrnent or private
publications. and information available over computer net~orks."'~There is no difference
between free information and information which must be paid for. Open source
information is not the Internet, but the Internet is a means through which open source may
be accessed.
Open source information can be described as open source intelligence when it is being referred to as one of the intelligence collection disciplines. Open source information is not
intelligence until it has been analysed by an intelligence analyst in the context of national security requirements. at which point it becornes open source intelligence. In essence, open source information is unclassified publicly availabIe information, and is in either an electronic or non-electronic format. Open Source Information - A True Collection Discipline
Open Source Information Resources
Much of the information on the vast majority of issues of concern to policymakers is openly available. Most of the expert knowledge on these subjects lies outside the Intelligence Community: in the policy agencies, in academia, in 'think tanks,' in the Library of Congress. in foreign countries. and in the rnediaSz7
Open source information covers every possible topic, including such fields as economics, government, industry, law, medicine, politics, science, social science, and technology.
Open source information is contained in traditional books, newspapers and magazines, as well as governrnent documents, official publications, Company reports, trade publications, professional and institutional journals and newsletters, news reports and documentaries, special reports, and conference proceedings. The format of open source information includes print, electronic, and broadcast transmissions, and the content may be obtained from many sources. Open source information is created both formally and informally by governrnents, companies, universities, associations, organizations, and individuals. Once created, this information may be obtained directIy fiom those who created it, as well as from libraries and stores, and through publishers, vendors, the Intemet and commercial online information providers. Open Source Information - A True Collection DiscipIine
Open Source Production
The traditional creators of open source information include the govemrnent. public and private companies. universities. think-tanks. associations and organizations. In addition. as the Intemet is becoming more accessible to an increasing number of people - in their homes, their workplace or in educational facilities - many individuals have become creators and producers of open source material.
In recent years, governments al1 over the world have opened up to increase their visibility and responsibility to their citizens. The result is a wealth of information that is easily obtainable regarding the most minute detail of geography and demographics, legal, political and economic structures. organizational charts of govemment departments, as well as annual public reports by ail levels of govemment, legislative information and legal renderings. For exampIe. the United States Central Intelligence Agency Intemet site has organizational charts showing the US intelligence community and its various components, with Iive Internet links to connect directly with each one." The Canadian Parliamentary web site includes bills as they are at first, second and third readings as well as the full text of debates within both the Senate and the House of Commons, and committee meetings and report^.'^ This information is usually updated rapidly, especially on government sites
28 Open Source Information - A Tme Collection Discipline which publish news releases, speeches and information updates. This same information is often available in print format, although usually it is printed neither as frequently nor as speedily. Laws and regulations in many countries are now available in pnnt, cd-rom or electronically through commercial vendors or the Intemet. One encumbrance to the push by govemments to get information out to the public is that an increasing number of government publications are becoming available only through the Intemet in difficult electronic Formats such as the Adobe Portable Document Format (.PDF), making the documents inaccessible to those without Intemet access and without computers powerhl enough to handle large files in specialized formats. That being said. detailed information on govement activities in almost every country is still available From a variety of print and other electronic sources.
Foreign Broadcast Information Service - FBIS
The Foreign Broadcast Information Service (FBIS) must be singled out as a distinctive and unique government source. Billed as the "primary collector of foreign open source information for the US. G~vernment,'"~FBIS offers translated and English-language news and information. Created by the Amencan government in 1941 to monitor German and Japanese short-wave radio transmissions, FBIS adapted to the changes required to address intelligence needs after the Second World War, and after the Cold War. Today,
FBIS has taken advantage of the technological advances of the Internet, changing its
29 Open Source Information - A True Collection Discipline product from print to a high tech all-electronic product. whereby information is disseminated within minutes of an original broadcast. Foreign news which is available in print sources. on radio and television broadcasts, and via Intemet sites, is monitored. translated into English and distributed over the FBIS network. Products available from
FBIS include foreign-language translations. transliterations, summaries and logs of foreign open source materials. as well as value-added products such as reports of media analysis, and foreign media notes. FBIS provides access to a catalogue of grey Iiterature documents and lends videos on foreign television coverage. While some of the FBIS products are limited to US govement customers. most are available on a subscription basis (through the FBIS web site) to anyone who is willing to pay the fees."
Public and Private Companies
Both public and private companies publish and make available extensive information indicating their corporate structure, narnes of executive members. line of business and products. financial performance and future intentions. With a public company. one which is traded on a stock exchange, this can be an annual report produced by the company, and submitted in accordance with local laws. Information such as this will often include reports from other sources, such as an audit by an extemal accounting company, and information such as a letter from the president of the company outlining past successes and future endeavours. This information usually comes from reliable sources, with serious legal
30 Open Source Information - A Tme Collection Discipline
implications should any of the information be found to have been falsified. The lnternet
has greatly enhanced this area of open source as rnany companies now have
comprehensive Internet sites on the World Wide Web where they explain in full what they
do. how and where they do it. as well as providing detailed corporate and financial
information.
Un iversities
A wealth of open source information is produced by universities. Most universities today have at least one. if not several, centres or institutes of higher research and study. To earn their reputation and attract funding, these centres publish reputable tracts on timely topics, ofien by subject specialists who have studied the field for a substantial tirne period. These publications may be occasional papers, or newsletters or journals which appear monthly or quarterly. and to which a subscription may be taken. In addition, the centres ofien provide details of upcoming conferences. and papers which have been presented at previous conferences. Many of these research centres and institutes have taken advantage of the
Internet to provide indices to their publications, and directories indicating the narnes of their specialists. An example of this is the Journal of ConfIicr Stztdies, offered through the
Centre for Conflict Studies at the University of New Brunswick. However, as is quite common on the Internet, only selected issues are online in full text, the tables of contents are limited, and to obtain the complete journal, a subscription must be obtained for the
3 1 Open Source Information - A Tnie Collection DiscipIine print version." Finally, many research centres and institutes offer links to other centres and institutes. An exarnple of this is the University of Calgary, where the Centre for Military and Strategic Studies (CMSS) maintains a web site that 3sspecifically designed to help researchers gather infor~nation."~~and which provides links to academic and research centres.
Thin k- Tanks
For specialized research publications, organizations known as think-tanks are another significant resource. Think-tanks eam reputations for serious papers, based on research and analysis. produced by individuals renowned in their fields. The publications usually address a single topic and are produced in response to topics of current or forthcoming interest. Exarnples of think-tanks include the Center for Strategic and International Studies
(CSIS). RAND, the Royal Institute of International Affairs (NIA), the Royal United
Services Institute for Defense Studies (RUSI), and the Stockholm International Peace
Research Institute (SIPRI). RAND. founded shortly afier World War II, cites its mission as being "to improve policy and decision rnaking through research and analysis." RAND
(which is a contraction of the term research and deveiopment) employs over 600 research professionals who research and write on a wide range of topics, offerhg impartial studies on these topics as well as imovative solutions.34RUS1 was founded in 1831 by the Duke of Wellington. and produces independent studies on geo-politics. geo-strategy, regional
32 Open Source Information - A Tnie Collection Discipline conflicts. defense and intemational ~ecurity.'~Another type of think-tank is Oxford
Analytica. an international consulting firm founded in 1975. Oxford Analytica draws on specialists at Oxford University. as well as other universities and think-tanks, to provide a daily service which analyses current events ail over the world. With a strong economic focus. Oxford Analytica offers analytical articles which focus on 'ihe impact of probable developmrnts on the business limat te."'^ Think-tanks may be privately funded by individuals. through private sector companies, or through govemrnent grants or awards.
The funding of think-tanks warrants special attention to ensure that the work produced by the organization in question is non-partisan, or that if a particular agenda or cause is being advocated. that this is duly noted.
Associations and Organizations
While associations and organizations have long published material concerning who they are and what they do. that information ofien fell into the realm of grey literature because limited printing and even more limited distribution made it difficult to obtain. Also, grey literature was not usually available through commercial online services or in libraries. The
Internet has increased access to associations and organizations, as many of them now have
Intemet sites, enabling them to disseminate information intemationally. Community, political, religious, and special interest organizations publish and broadcast vast arnounts of information aimed at existing and potential members, various govenunent bodies, and
33 Open Source Information - A True Collection Discipline the media. The material cm include detailed information about who they are. their mission and goals. their leadership and sometimes even their members. their structure. where they are located. and news releases, newsletters and images of their activities. In addition to the mainstrearn charities. non-profit or not-for-profit organizations. political parties and cornrnunity information sites. there are also an increasing number of Intemet sites for extremist groups such as the outlawed Jordanian Islamist party Hizb al-Tal~ir.~'the Shi'ite
Islamic Extremist group He~bollah.'~and the right wing extremist group Aryan Nationsj9 where detailed information on their goals and their methods is available. In 1999, Bakri
Muhammad created a stir in England when he used the Internet to publish an open letter to potential supporters which "called on Muslims to rise up in a jihad. or holy war. against
America and its allies.'"1°
Media
While the various news organizations around the world are either government organizations or private companies, they are ofien seen as a separate category of producers of information. Not only does the media consist of companies Iike CNN, where news is available minute by minute, but also of many newspapers and news magazines where lengthier articles are prepared to examine current issues and trends. As such,
"media" consists of wire services, such as Agence France Presse (AFP), Associated Press
(AP), Canada Newswire (CNW), and Reuters, where news is produced on a continuous
34 Open Source [nformation - A Tme Collection Discipline basis (24 hours a day. seven days a week), and newspapers and news magazines. which may be produced on a daily. weekly or monthly basis. Based on open source material from original and secondary sources. these articles and reports may cover a particular viewpoint or bias. or in some cases. try to demonstrate a11 viewpoints. In any current situation. such as the outbreak of violence in Kosovo, the media can provide an ovenvhelming arnount of open source information. The challenge however. is to ascertain what is accurate, what is reiiable. and what is not. Sornetimes the media is too close to the event taking place and does not have the broad perspective to put the news in context. This cm result in exaggerated sensationalism with a narrow and sometimes skewed focus. Furthemore, certain media outlets are known to promote a particular political or cultural view through narrow or unbalanced reporting.
Media coverage today greatly reflects the global nature of the world. Very few areas today are closed to cameras and reporters. and even the most remote areas can be accessed with modem telecommunications equipment. Moreover, technology enables the receipt of media reports not only from local stations but from stations based in foreign countries, allowing information to be obtained from al1 sources and al1 perspectives. A recent example is the volatile afiermath of the independence referendum results in East Timor, where the media reported the attacks by the militia then panned to the leaders at the
APEC conference. where media observers were holding their collective breath waiting for the leaders to make a decision. Similarly in Turkey and Taiwan, viewers were able to
35 Open Source Information - A True Collection Discipline watch the irnmediate afiermath of the earthquakes, and had the impression of being on-site via the carnera as individuals were rescued from the rubble. Taking advantage of the international aspect of the media, individuals reportedly involved in terrorist activities seem to relish giving timely interviews to joumalists. letting the media impart their message to a global audience."
Grey literature
Another form of open source information is what is known as grey literature because it is information which is published, but in such a way as to be difficult to obtain. As such. it is information located in that "grey" area that is legally but not readily available, is difficult to locate and is not indexed anywhere. It is there if one knows where to search in the shadows.
The American Interagency Gray Literature Working Group defined grey literature as
"foreign or domestic open source material that usually is available through specialized channels and may not enter normal channels or systems of publication, distribution, bibliographie control. or acquisition by booksellers or subscription agents."'"
This means that oncc this type of literature is pnnted or distributed, it is not available by the traditional means such as booksellers or libraries. Also, it is seldom indexed or Open Source Information - A Tme CoIlection Discipline catalogued, so that even if a library did have a copy it would Iikely be in a topical file rather than retrievable through a library catalogue. There are few. if any, access points to locate grey literature.
The types of material usually considered to be grey in nature include:
- academic papers preprints committee reports - proceedings conference papers research reports - corporate documents - standards - discussion papers - technical reports - dissertations theses - governrnent reports - trade literature - house journals translations market surveys - trip reports - newsletters working papersJ3
Grey literature is produced by think-tanks and research organizations, as well as by government, political parties, corporations, universities, special interest groups, community and religious organizations, professional associations and private individuais.
Grey information is usually deemed to be of short term interest and is often discarded once its usefùlness has ceased. As it is not systematically acquired by libraries or booksellers, much less indexed and catalogued in the traditional manner, it is difficult to locate, especially as time passes. Part of this is due to the nature of this type of information and its non-standard format which makes it diffkult to fit into standard Iibrary practices. Open Source Information - A Tme Collection DiscipIine
Most grey literature is produced to make people aware of a particular viewpoint, advertise an event or platform, and as such has a bias and perhaps an inaccurate reporting offacts.
Grey literature is available in vast quantities, especially on the Internet. but not al1 of it is relevant to producing intelligence. Notwithstanding, locating relevant grey information can be exceptionally beneficial as it is unique information which may not be available in any other source.
Open Source Distribution
Tradifion al
Open source is available through a number of means. One direct method of obtaining a publication is to contact the original author, such as the govemment department, the research centre or the individual who authored the material. As this is both time consuming and not always possible, there are other venues to obtain this material. Open source information may be obtained in libraries and in book and magazine stores (and occasionally in general stores such as country specific guide books in a travel store), as well as through the publishing companies who produce the information, such as the
Government Printing Ofice, Blackwetl's or Princeton University Press. For a library, an institution or a Company that obtains published material on a regular basis, there are companies who specialize in consolidating the purchase of material through one agency.
38 Open Source Information - A True Collection Discipline
These vendors often specialize in certain types of information, such as legal or school
material. or information from a particular geographical area such as Canadian publishers,
and facilitate the purchase of information. For an individual, information sources are
usually borrowed from a library or purchased in a store.
The most discussed means of obtaining open source information is the Internet. The
amount of information available on the Internet increases on an hourly basis. It should be
noted that the Intemet itself is not a producer of information but a means of
communicating it. much as the shelf in a book store is a means of displaying what is
available for purchase. The Intemet, in reality, is a global interco~ectionof cornputer
networks. It is the govemments, educational institutions, businesses, organizations and
individuals who create the information that is made available via these computer networks.
When initially searching the Intemet, it is easy to become ovenvhelrned by the vast arnounts of information available, and to become enthratled with what appears to be the most magnificent open source resource tool ever developed. There is travel information, medical encyclopedias, and legal advice, there are discussion papers on virtually every topic, and govemrnents al1 over the world appear to have hired web masters to create
Intemet web sites. However, there are serious limitations to using the Intemet and to
39 Open Source Information - A True Collection Discipline relying on it as a sole provider of open source information. The initial euphona of using the Intemet subsides quickly as the frustrations and pitfalls become increasingly evident.
It is possible to spend hours searching for items on the Intemet without ever finding them.
This may not be the result of faulty search tools or of an inexperienced Intemet searcher, but of the simple fact that not everything is on the Intemet. Information regarding certain
Parliamentary Committees is not on the Intemet. some governrnents decline to put every section of every department on their web sites, and pivate companies may deem certain information not appropriate for mass dissemination. Furthemore. as is especially the case with newspapers. magazines and joumals, many Internet sites have only partial information in cornparison to their print version. There might be a table of contents for the magazine or the journal. with only a limited number of the articles available in full-text at the same site, and with a subscription option to obtain the remaining articles (either in print or through the Internet after logging in with an account name and password).
Newspapers frequentIy indicate that the Intemet version is the "online" version of their publication, and that this edition is not the same as the print version. Generally. this means that certain articles and sections have not been reproduced in the electronic version. Also, increasingly more Intemet sites are charging for access to their articles, news and reports.
Researchers are becoming frustrated, because when they finally locate the information required, they discover that a financial account must be created before the material may be obtained. Open Source Information - A True Collection Discipline
Researchers also require older. more historical material in addition to current information.
While the Internet may have extensive coverage of current news, the archiving of older material on the Intemet varies greatly, and is generally scarce. Some databases have archives that search back for decades. but most have material ranging from two weeks to two years. Again in most cases. information may be obtained free of charge in the
"current" time frarne (such as the last two weeks), but for anything older than that, the user must obtain a paid subscription or use a commercial online service. In al1 cases. there is no standardization of what is kept and what is not, and no stability to indicate that policies will not change suddenly or that material will not disappear without warning.
Accessing the Internet can itself be a great cause of fmstration. There is the question of speed - how long it takes to access Intemet sites. and download or print documents, in addition to questions of pnvacy and security. The advent of cable access and direct
Internet connections have addressed the issue of speed, greatly facilitating extensive searching and downloading. However issues of privacy and secunty still cause great concern. Threats of information warfare, hacktivism and fraudulent use of Internet accounts remain quite serious. While this might not be a challenge for the individual searcher, for companies involved in cornpetitive intelligence and for governments, especially intelligence services. these threats to the security of their research are real. For exarnple, in what was called the "world's first Internet war," when the North Atlantic
Treaty Organization (NATO) commenced bombing attacks in Kosovo, the NATO Internet
41 Open Source Information - A True Collection Discipline site was attacked within days. The information warfare assault was a "denial of service attack." where the NATO web site was overloaded with so many incoming e-mails from the attackers that the system crashed, forcing the site to close, thus denying access to everyone and closing what had been a site of reliable information." In February 2000. a nurnber of very popular and extremely busy Intemet sites were shut down for hours due to hacker attacks; this included the popular directory Yahoo, the news site CNN, one of the largest online brokers E-Trade and the well-known and heaviIy used companies Arnazon. eBay and Buy?
Al1 information must be evaluated as to its reliability, it accuracy and its integrity. On the
Internet. this is especially dificult as it is relatively easy to enter into another site and change the information that appears, without anyone realizing that this has been done.
Several major public Intemet sites, including the home pages of the Central Intelligence
~gency~~and the Canadian Security Intelligence Service'" have been broken into and modified. Another issue related to the evaluation of the accuracy of information is that the
Internet facilitates the publishing of information by individuals. As such, anyone with an opinion cmcreate a site indicating that this is the definitive centre for information on their topic. While it can be of interest to gather various opinions and viewpoints, it can also be very difficult to determine fact from fiction, and to locate unbiased, neutral or authentic information. Unless the information is substantiated, its origins wilI be difficult to ascertain. For example with the recent campaign in Kosovo, there was a war of rrurh over
42 Open Source Information - A True ColIection Discipline the Internet with sites launched by Serbs. Albanians. and NATO. al1 showing their own version of the 'rmh." These sites "broadcast suspicious images, dubious headlines and
'news' that reveals more about the peds of propaganda than the real ri sis.‘'^^
Finally. from a technical point of view. the Internet has become much more difficult to navigate. Sites are becoming cluttered and lengthier. as more information is cramrned ont0 each page. With the advent of the frames versions. the page is often so divided that only a tiny window containing information is visible and the user is required to scroll horizontally and vertically to find what is required. The new side frames with details of what selections are available often scroll for many more frames than the information itself. Advertisements can be confused with the information on the site itself? as the advertisements become linked with the topic being searched. Search tools are no longer what they daim to be. with some search functions becoming vague and confusing, while others are advertisements in disguise. Search tools are being amalgamated, with a resulting conhsion as to what database is being searched. In addition, it has been estimated that even the largest search tool only searches 16% of the 1ntemetu9 Links are often out of date. leading to dead end sites that have moved or are no longer in existence. Open Source Information - A True Collection Discipline
Commercial Online Information Providers
While the Internet claims to have an overwhelrning arnount of information, commercial
online information providers offer even more overwhelming amounts of information, but
information that is reliable. secure. organized. fully searchable, complete and with
extensive archives. Commercial online information providers sel1 access to specialised
databases that contain current and archived reliable information. This information is
available through secure communication lines and is searchable across several databases
concurrent ly. using precise. standardized search terminology.
The primary commercial online information providers are the companies Dialog,
Lexis/Nexis, Dow Jones, Quicklaw, Infornart, and Dun and Bradstreet. Dialog has over
900 databases and more than six billion pages of text. claiming to contain 50 times the
information on the World Wide Web, on topics covering company information. defence,
the humanities, news, social sciences, medicine, science and te~hnology.~~LexisNexis,
claiming over 8.692 databases and over 1.4 billion documents, has numerous sources
which are ofien hard to access anywhere else, especially a nurnber of non-English sources.
The topics covered include information on cornpanies, laws fiom many different countries,
international news, regional information and specialized reports." Dow Jones covers an
increasingly wide variety of international news sources and Company inf~rmation.~'
Quicklaw is a Canadian company which provides online access to federal and provincial
44 Open Source Information - A True Collection Discipline laws and regulations, as well as to court decisions at al1 levels. both recorded and unrecorded? Infomart specialises in Canadian news and Canadian company information.
From wire services to large daily newspapers and small local weeklies, Infomart provides access to current and archived news, while company databases contain extensive current and historical data on public and private cornpanie~.~''Dun and Bradstreet provides complete company reports. financial statements. credit ratings and owmership details for both public and private companies al1 over the world."
These companies have existed for many years and stake their professional reputations on the reliability of both their Company and the information to which they provide access.
Users of these services can be certain that the information contained in these databases is accurate and reliable. information is available as quickly as it is produced and with archives as far back as the early part of the 20" century. While certain databases cover the same resources and the sarne information, each service has in addition unique resources of information that are unavailable elsewhere. To prepare exhaustive research on a topic. sornetirnes each service will have to be searched to ensure that al1 sources have been covered. Because the information is prepared in a standard format, using pre-determined searchable data fields, researchers are able to search these databases using complex highly efficient search strategies that retrieve very precise results. The level of complexity to search these databases varies with each service, so that searching may be done on a fairly simple level or an advanced complex level. In addition, researchers can be quite specific as
45 Open Source Information - A True Coliection DiscipIine to where they are searching, such as limiting their search to business-related databases, something which cannot be done when searching the Internet. While users must subscribe to these services and ofien pay not only for the time they are searching but for the amount of information they obtain. use by an efficient searcher can result in quickly and efficiently locating precisely the information that is required.
Experts / Specialists
Another area considered by some to be open source information is the knowledge held by experts and specialists on specific topics. As this could come under the category of human sources and human source development. instead of under open source information, the lines are somewhat blurred when looking at subject specialists. There are discussions in the literature on the perceived need for intelligence services to cultivate contacts in academe and in various think-tanks or private research facilities. The view is that intelligence services could call upon these individuals to provide insights, write papers and answer queries regarding topics of research that are of interest to intelligence services.
The benefit would be in obtaining access to unclassified information on a variety of topics, information which is highly specialised, and which in some cases may be found faster in one telephone call than by searching numerous databases. Nevertheless, there will always be the issue of how in-depth the expert's work could be on the issue being researched by
46 Open Source Information - A True ColIection Discipline the intelligence service, given that the specialist would not be privy to the full, classified topic being examined. Even if the specialist had the necessary security clearance. the topic might be so sensitive that the full information could not be disclosed. This would limit the relevancy of the results, as the specialists would be working from incomplete information as to the real issue being queried.
In addition. there are issues of timeliness and disclosure. Private research organizations and think-tanks would require a certain amount of time to research and write on a given topic, given their standard methods of publishing. Academics are renowned for their level of research but condemned for the length of time required to research and write their papers. time they consider a necessity but which an intelligence service would consider a luxuiy. Furthemore, researchers generally write so that they may publish their findings.
This would not be possible if the work being researched was for clients in an intelligence service. It would seem more appropriate to obtain existing reports located in an open source collection, or to have subject specialists working from within the intelligence service.
Conclusion
Open source information is available in pnnt, electronically or via broadcast transmissions, and is produced by government, cornpanies, universities, associations, organizations, the
47 Open Source Information - A Tme Collection Discipline media. and individuals. There is also grey literature. information which is limited in its production and its distribution. but which may be highly relevant. Distributed by commercial vendors. over the Internet and by commercial online information providers. open source information has varying levels of currency, accuracy and accessibili ty. The advent of the Internet has resulted in an increase in how much information is available. and made publishing easier and faster. While the lnternet seems to provide access to al1 information produced. in reality. commercial online databases provide access to the largest arnount of information that is accurate. reliable. and comprehensive. In addition, commercial online databases enable high Ievel searching. allowing for precise, efficient and effective retrieval of information. Subject specialists in academe or in think-tanks may be used to obtain highly specialised information on a given topic, but there are encumbrances, such as security clearances, access to the information required to accomplish their research. and the speed with which they can produce their reports, that deter their use by intelligence services. Open Source Information - A Tme Collection Discipline
Percentage of Open Source Information Used
A review of the literature indicates that most intelligence services claim to be using open source information. The levels of use, as welI as the types of open sources being used,
Vary frorn one intelligence service to another. In the United States. the CIA's Factbook on
IntelZigence indicated in the section on information collection that "open source reporting is integral to CIA's analytical ~a~abilities."~~In Canada, the Canadian Security Intelligence
Service (CSIS) supports the use of open source information in the intelligence cycle and as part of its intelligence prod~ct.~'Several Australian reports and papers indicated that open source information has becorne an integral part of the Australian intelligence product?
A contentious issue in the literature on open source is the percentage of open source information used in the intelligence product. It is reported to go frorn as low as ten percent to as high as ninety-five percent. The Amencan Company Open Source Solutions indicated in its Open Soztrce Intelligence Handbook that:
Experts generally agree that the percentage of the open source contribution will vary frorn zero to 100 percent depending on the problem, and that an average of 40-60% is readily certifiable. Sornewhat unexpectedly, open source receives great credit against terronsm and proliferation, and is said to account for as much as 80% of the al1 source product in those reporting area~.'~ Open Source Information - A Tnie Collection Discipline
Even when the estimate is as low as thirty percent, it is sometimes believed that the use of open source information is the dominant source used in the product :
We would assert that a thirty-percent contribution to the national intelligence product for open source represents a safe estimate. This anoints open source, on average, as the dominant contributor to the national product.
Several years ago CIA's Directorate of Intelligence reviewed the contribution of various intelligence collection disciplines - SIGiNT, HUMINT. IMINT. oDen source, and other technical collection - to the CIA (national) product. [...] That review confirmed previous studies and rated the open source contribution at about 35% - roughly ten percentage points above HUMINT. with successively Iarger leads over SIGINT and IMINT.60
The percentages that are higher. those approaching ninety and ninety-five percent, are ofien cited for issues such as economic intelligence or information operations where much of the information to be analysed is available publicly. However. in most cases "there is widespread. if grudging, agreement that the contribution [of open source information] is sizable. [...] There is less widespread agreement on the calculus of such contributions.'"'
The difficulty is to establish an accurate and reliable means of calculating the percentage used. especially given the wide range of intelligence products. It cm be agreed, however, that whatever the percentage, a great deal of the information which is processed into a finished intelligence product may be obtained through the use of open sources.
Joseph S. Nye, Jr., former Chairman of the US National Intelligence Council, quoted open source as ranging anywhere from ten percent (in the case of information on North Korea) Open Source Information - A Tme Collection Discipline to 90 percent (on AIDS or economic intelligence). "but the combination of adding the clandestined [sic] and the distillation [of open source information] for policy relevance is something that 1 think needs to be done if you're going to provide good estimative intelligence.'-62
Even as early as 1947. when reporting to the Senate Cornmittee on the Armed Services,
AlIen Dulles noted that "a proper analysis of the intelligence obtainable by these overt, normal, and aboveboard means would supply us with over 80 percent, 1 should estimate, of the information required for the guidance of our national p~licy."~'In 1954, Ladislas
Farago. a journalist and one-time employee for an American inteIligence agency, wrote that "it was estimated that approximately ninety percent of al1 information accumulated within intelligence services comes from overt source^."^ A few years later. in his classic book Arnericun htelligence, Sherman Kent noted that "sorne intelligence devotees have said that you can find out by overt means some 90 or more per cent of what you must know.'"' In Canada. the director of the Canadian Security Intelligence Service, Ward
Elcock. noted in 1994 that "up to eighty percent of the input to intelligence analysis in sorne operations comes frorn open source^.'"^
The issue of the percentage of open source information in the intelligence product has been ongoing for some time. The percentages that are quoted range anywhere from ten percent to ninety percent or higher. However, in al1 of these estimations, how the Open Source Information - A True Coilection Discipline
percentage is arrived at is never explained. The percentage appears to be an approximation
based on an estimation of open source information contained in a completed intelligence
product. It would appear. however, that every intelligence product would have to be
evaluated to ascertain the percentage of open source information contained in each unique
product. From this. a statistical table would have to be developed to ascertain overall
trends and usage dependant upon the similarity of various intelligence products. This
would perhaps provide a more telling picture than a general overall estimate, seemingly
arrived at arbitrarily.
While it is of interest to attempt to ascertain the percentage of open source information
used in each intelligence product. this tends to detract from the more important issue of
the value of open source information. Furthemore, a more accurate and meaningful
method of assessing open source information is the assessrnent of the value that open
source information brings to the intelligence product. This issue is examined in the next section. Open Source Information - A True ColIection Discipline
The Value of Open Source Information
There is a danger of people in Langley [...] thinking that information resides inside Our four walls. In other words, if it isn't clandestinely [acquired], it can't be as important. And very ofien there is a danger that you would find particularly in economic intelligence, where 1 think there was an awful lot of trivia being collected. which anybody who had the sense to just sit down and read the Financial Times could have found out, and while we were risking any sort of possible diplornatic incident by collecting this stuff from other countries clandestinely when you could have gotten most of it by picking up the newspaper and reading intelligently, 1 think is explained only by the feeling that, well, if we got it clandestinely, somehow it's very irnp~rtant.~'
It is fascinating to follow the slow winding path of the growth in the level of acceptance of
the use of open source information by intelligence services. While there were early open
source proponents. like Allen Dulles and Shennan Kent, who noted the quantity of
information that was openly available and the value of its use in the intelligence product,
the perceived value of open source information went into steep decline and disuse during
the Cold War. The end of the 20thcentuxy saw the advent of more openness in
governments and in previously secretive countries like Russia, as welI as innovations in technology to enable easier and more widespread access to information. As a result, open
source information is becoming increasingly more accepted and more widely used by
intelligence services al1 over the world. Open Source Information - A TN~Collection Discipline
The value of open source information can be exarnined to ascertain why open sources should be used in the intelligence product. The principle benefits of using open source information are as follows:
- ensure efficient use of finances and resources; - corroborate and confirrn or refute and deny information; - supplement and enhance existing information; - provide new information; - avoid bias and avoid mirror-imaging; - provide context; - protect classified sources and operational methodology; - protect personal freedoms, reduce intmsiveness; and - lower classification and widen distribution.
Ensure Efficient Use of Finances and Resources
Everywhere in government budgets are being decreased. or are not being increased. resulting in managers are having to do more with less. When information is collected for intelligence services, it can be through highly technical (and usually covert) collection methods, the development of human sources. resource intensive investigations or the use of open source information. When there is an option, open source information can be obtained more inexpensively than mounting a covert operation or using high tech methods.
Ward Elcock. Director of the Canadian Security Intelligence Service indicated that: "the smaller you are, the more you have to be focussed with your collection resources. Open sources do not cost as much to collect as secret intelligence does.'"' Open Source Information - A True Collection Discipline
Especially if the information required exists already in open sources, it would be a waste of hard-sought dollars to collect the information through potentially more expensive operationa1 methods. As well. especially if there is a Iimit to the number of operational activities that can be undertaken. personnel and resources are better reserved for use when they will be the unique source of information available. As has been noted in the
Australian intelligence community,
covert collectors do not target information if that information is available through other overt means. Besides the waste of intelligence service resources by unnecessarily duplicating the work of each other, why incur the relatively higher cost of covert intelligence collection. and the associated political risk, if this too is not nece~sary?~~
When it comes to personnel resources, the use of specialised open source information colIectors would Save time and money. Information specialists who are trained in research, resource evaluation, the use of specialized commercial databases and proficient Internet searching. and who have in-depth knowledge of what open information is available and where. can act upon the information requirement, Iocate the appropriate resource, and provide the information quickly and efficiently. In turn, this would enable analysts to devote their time more effectively to analysing. and investigators to devote more time to conducting investigations. This use of open source information and open source information collection specialists would engender a more efficient division of labour, as well as a more effective allocation and focussed use of resources. Open Source Information - A True Collection Discipline
Initially. it must be ascertained what information is available in open sources. Where the open information ends. the use of classified information and covert collection methods should commence. The Australian Security Intelligence Organization has deemed that:
Firstly. al1 collection agencies must be aware of what information is available through overt sources. So the start point in the intelligence requirements process is to maximize Our knowledge about a requirement by optimising data available through open source information. Where that process stops is the start point for intelligence sourced from other overt sources: and where the provision of intelligence from overt sources stops. colIection by covert means begins. 70
As was noted by Rick Bennett. Deputy Director Corporate of the Canadian Security
Intelligence Service. "you cannot and should not start an investigation without first looking at open source information to see what is tl~ere."~'Sherman Kent indicated that a preliminary examination of open source information would enable the collectors of covert information to more aptly focus their collection of secret information: '.the clandestine people will not know what to look for unless they themselves use a great deal of intelligence which they or some other outfit has acquired ~vertly."~'
Stuart Farson, a professor of political science at Simon Fraser University in Burnaby, wrote in his article. '-Does Intelligence Have a Future?" that an increase in the use of open source information would result in a more focussed coIlection of unique information from human sources. "It may be anticipated that as open source intelligence (OSCNT) gets more sophisticated and widely accepted, it too will allow HUMINT to be more precisely
56 Open Source information - A True Collection Discipline targeted against those things that only humans can a~quire."~'This precise targeting would ensure that when HUMINT was being used. it was for information that was unique and that was unavai lable elsewhere.
In the case of the US Joint Intelligence Center Transportation Comrnand (JIC Trans). when tasked with sending troops and materiel to Kosovo in 1999, the JIC Trans needed immediate information on the ports of Durazzo in Albania and Ancona in Italy. The staff at JIC Trans were able to rapidly ascertain al1 the information they required to plan the operation using open information such as Ferry schedules. Rather than mount a costly and lengthy covert operation. or proceed through traditional intelligence channels. JIC Trans was able to successfully use open sources to detennine immediately detailed and current information on these ports.7J
The Canadian Senate's Kelly Commission reported in January 1999 that:
The Committee also heard proposals that the security intelligence communiîy spend Iess resources on collection and more on analysis of intelligence. It was pointed out to the Committee that in today's information society there is almost a surfeit of information, mostly from open sources.''
The recornmendation seemed to be that the security intelligence cornmunity could Save on resources that were being used for expensive covert collection methods if there was more collection of open source information. Given the copious quantity of open source available Open Source Information - A Tnie Collection Discipline in the information society of today. there would appear to be logic in this thought.
Corroborate and Confirm or Refute and Deny Information
The use of open source information can corroborate and confirm data (classified or unclassified). as well as refute and deny information which is obtained through covert collection. such as HUMINT or COMINT. Using open sources. basic facts cm either be confirmed as true or denied as false, such as an event that was supposed to have occurred or a post which an individual was rumoured to have held, which cm in turn establish the classified source as reliable or unreliable. Open source might indicate instead that the event in question took place in a different month, year or location - or not at al1 - thus throwing into doubt the reliability of the information. It might also indicate that the individual in question was not holding the position he or she was said to have been holding at a given time.
As an example. on 7 May 1999. a NATO air attack accidentally bombed the Chinese
Embassy in Belgrade. The US Under Secretary of State. Thomas Pickering, reported on
1 7 June 1 999 the findings of the US intelligence community regarding the incident.
Among the reasons cited for the accident, was that "a11 sources of information used to prevent precisely this type of accident were either inaccurate or incomplete." This was clarified in the indication that: Open Source Information - A True Collection Discipline
none of the military or intelligence databases used to veriQ target information contained the correct location of the Chinese Embassy [... and that ...] no one who might have known that the targeted building was not the FDSP headquarters -- but was in fact the Chinese Embassy -- was ever c~nsulted.'~
The commercial street maps consulted dated from 1989 and 1996. while the US government produced map was from 1997. None of these maps indicated that the Chinese
Embassy was at that location. Secondly. the location that was to be targeted was fed into several US intelligence and military databases to see if it there were any diplornatic or other sensitive areas (like hospitals) nearby. In spite of recent visits by US oficials to the
Chinese Embassy at that location, the databases returned no matches. as the databases had not been maintained. Pickering indicated that this particular type of database "has been routinely accorded low priority..' Further it was confirmed that:
The address [of the Chinese Embassy] was in the phone book, the di plomatic List and perhaps other sources, including Yugoslav maps. Certainly, many citizens and officiais of the United States were aware of the correct location of the Chinese Embassy in Belgrade. However, in error, their knowledge was not recorded in any of the military or intelligence databases used in the targeting process."
The accidental bombing of the Chinese Embassy shows how current open source information could have easily and rapidly corroborated information regarding what was at that street address and the location of the Chinese Embassy. As Under Secretary of State
Pickering admitted, "We have subsequently found some maps which show the correct current location of the Chinese Emba~s~,"'~indicating that the information was available. Open Source Information - A Tme Collection Discipline
However. the problem was the reliance on an outdated database containing information on
the location of diplomatic posts. The database was not maintained. and as such contained obsolete and unreliable inf~rmation.'~The current location of diplomatic posts is factual
information that is readily available in open sources. One way to avoid obtaining false
information is to confirm that information in open sources. To ensure that databases
containing outdated information are not used, those using the databases should be aware of the parameters of the database: precise information should be available enabling those
using the resource to evaluate where the information has originated, its currency, and the
frequency of maintenance.
Another example comes from the US Joint Intelligence Center Transportation Comrnand
(JIC Trans) and its use of open source to ascertain the locations of the various airfields in
Malaysia. The information JIC Trans had from various intelligence reports over the years was conflicting and contradictory. Using open source information JIC Trans was able to resoIve this problem and not only chri@ the information on hand but discover that in fact a new airport existed that they were unaware of.80 It is surprising how frequently simple facts can be incorrect, thus throwing into question an entire report and potentially resulting in disastrous or questionable decision making. Open Source Information - A True Collection Discipline
Supplement and Enhance Existing Information
As well as confinning basic facts. open source information can go further. providing supplernental information to enhance already existing information. This process uses open source to build upon the information already existing, and could potentially change the direction of the investigation. As was noted by Robin Winks in his examination of the
World War II Research and Analysis Branch of the Office of Strategic Services (OSS):
Some of the information taken from newspapers may have been deliberately misleading. or too lacking in detail to be of help. Yet, confirmation from IDC8' material could lead to a serious reevaluation of an agent's report frorn the field, to the first full picture of Japanese reconstruction of roads in Netherlands East Indies, to a detailed knowledge of which publishers in neutral Spain parroted the Nazi message!'
The OSS used information frorn open sources. such as the pictures of roads being rebuilt by the Japanese in Netherlands East Indies, to reevaluate a field agent's report. This information sometimes impacted upon, or even altered. the ultimate course of action, as plans were reviewed subject to the additional information.
An exarnple recounted by Ladislas Farago, in his book War of Wits, showed how a
German journalist was able to locate enough open information in 1935 about Hitler's new mythat the subsequent publication of this information caused his arrest. Berthold Jacob was taken into custody by agents of the German secret service, and was interrogated as to
6 1 Open Source Information - A Tnie Collection Discipline where and from whom he had obtained the infomation that enabled him to create a 172 page book providing minute details about the command structure. the personnel and the various divisions of the new army. It included information such as the names and biographical details of al1 the commanding generals, and current information on the platoons attached to the newiy-formed Panzer divisions. Jacob reported that he had found al1 of his infomation through various social notices. obituaries and other news items in the local new~papers.~'
Provide New Information
Similarly. open source information can provide new information. Another example presented by JIC Trans shows how open source provided information where there was no intelligence available. JIC Trans was required to make a delivery to Chile, but as there was no intelligence requirernent in Chile, JIC Trans had no information on hand. Using open source information. JIC Trans discovered there were ongoing labour difficulties in Chile which would delay offloading in the ports. As such, using open source information they found the information they required and, as well, new information which caused them to modify the operation."
The new information provided by open source can also assist by indicating that the information obtained through covert means is not something that is secret or that warrants
62 Open Source Information - A True Collection Discipline an investigation. Rick Bennett. Deputy Director Corporate of CSIS, noted that "the use of open source can decrease the number of investigations: if the information is confirmed in open sources. we may not have to launch an inve~tigation."~'
Avoid Bias and Mirror-Imaging
There is an entire field devoted to the study of the perceived problems with the intelligence product and the various errors which create false forecasting, especially in the
US National Intelligence Estimates. Two intertwined areas that are discussed in-depth are bias and mirror-imaging.
Bias is when the analyst has a built-in preconception, perhaps due to previous assumptions or attitudes. or social or political views. Such a bias could distort how information is perceived. skewing the assumptions that would be made and the resulting conclusions. As indicated in the US report In From rhe Coid, it is essential "to assure that the culture surrounding intelligence analysis does not blind those who work within it to aberrant facts, countervailing trends, and unconventional interpretations that could prove vital to assessing a situation c~rrectly."~~
In the case of mirror-imaging, the analyst decides upon a potentiaI outcome based on personal reactions. or as noted by Abram Shulsky, "the judging of unfarniliar situations on
63 Open Source lnfonnation - A Tnie Collection Discipline the basis of familiar ~nes."~'An anecdotal comment that illustrates the point is that
Americans are said to think that everyone else acts Iike they do, but just happen to be in another country. In this case. the analyst would disregard how the culture and country concemed would react. and instead would assume that the reaction would be similar to one that they or their own govemment would have. In the case of the 1973 Yom Kippur
War. Israeli military strategists believed that the Egyptian Amy would not start a war that they could not win. because in a similar situation, Israeli forces wouid not launch an attac k?
Another form of mirror-imaging is the "not invented here syndrome."" In this case. there is a belief that if we have not yet invented it, then it cannot possibly exist. This applies to both intelligence services and to military forces, where there cm be a refusal to acknowledge the capabilities of an adversary. especially if one's own research and development centres have either not thought of the idea, or have given up trying to deveIop it.
For both bias or mirror-imaging, open source information is of value. For bias or built-in attitudes, the provision of information documenting al1 facets of an issue will enable the analyst to become familiar with a broader spectrum, beyond his or her own bias. For mirror-imaging, examples can be provided of previous reactions or other facts to show how those in a given culture will react in various scenarios. The Royal Canadian Mounted
64 Open Source Information - A Tme Collection Discipline
Police have used open source information to counter the possibility of mirror-imaging when dealing with Russian organized crime. Open source was used "to have a better understanding of the mind set of these people and their action^."^^
Provide Context
Often. classified information contains selected fragments of information without context or without having the global picture. The use of open source information can supply that context. enabling the analyst to work within a more complete picture. The Director of the
Canadian Security Intelligence Service noted that "unless you have open sources, you may not understand enough about an issue to know the relevance of secret information. Open sources provide the ~ontext."~'In addition. open source information can be a starting point to provide the background contextual information on the issue being examined.
Ward Elcock noted that "we need open sources to get a better, faster read on some of the issues related to a terrot-ist group and what it is d~ing.''~'
Before commencing an investigation, interviewing a source, or even giving a speech or making a presentation, open source cm provide background information. Be it a professor before a class. a CE0 making a presentation, or an investigator on an interview, research in open sources witl provide a wealth of background information on a wide variety of topics. In the case of an intelligence service, Rick Bennett noted that: "open source equips
65 Open Source Information - A True Collection Discipline the investigator better before he or she hits the ~treets.''~~
Another exarnple would be the decision to create a new peacekeeping mission. At the commencement of each new mission. there is a need for the larger context beyond the situation itself. Military and local intelligence can be cornbined with extensive open source material detailing background facts on the country and the specific area where the mission wilI be carried out. Open information concerning the geography. politics. economics and demographics of the country as well as obtaining specific information such as maps, schedules of local transportation and weather forecasts can be obtained. providing a complete picture.
An example of open source providing contextual information was provided by the Royal
Canadian Mounted Police (RCMP). The RCMP used open source information to create a better understanding of Russian organized crime and "to piece together various profiles."
In addition, open source "provide[d] historical background on the development of organized crime in Russia" and "confirm[ed] information supplied by sources as well as to develop association charts between key players and key companies: who are they. how big are they, which companies are involved, and how are various people linked to them.''94
The use of open source information enabled the RCMP to better concentrate their resources on the collection of classified information and the use of covert collection methods. In addition. anaiysis could then be based upon a complete and comprehensive
66 Open Source Information - A True Collection Discipline overview of Russian organized crime. Open source provided the frarnework into which the fragments of information could be brought together into one picture.
Another exarnple of how open source information can provide context is provided by
Stuart Farson. Farson indicated that the use of open source information - including grey literature - would enable the analyst to draw information from a variety of sources, thus increasing the capacity to understand the "disparate pieces of information." There would be a greater overall understanding, as open source information would provide the context within which the analyst could deduct the meaning of the separate pieces of information.
The more plentiful supply of open and grey sources of information means that the analyst now has a much greater capacity to devetop understanding by drawing reliable inferences from disparate pieces of information. This should have an immediate impact on our definition of intelligence. In the past, most practitioners viewed inteIligence work as obtaining information that others were determined to keep secret. A more appropriate contemporary vision is to obtain understanding about things that are not immediately visible.95
Protect Classified Sources and Operational Methodology
Using open source information can protect an intelligence service from revealing human sources or covert methods of collection. Confinning classified information in open sources can protect the source through which the classified information was obtained which, in turn, cm protect the covert means by which the information was acquired. The Brown Open Source Information - A True Collection Discipline
Commission noted that, "the use of open sources is a low risk option, at worst interest in a topic may be exposed, at best, agency interests, people, assets and covert collection modus operandi have not required exposure to those investigated? As such. it is considerably lower in risk for an intelligence service to obtain open source information than it is to mount a covert operation, where the interests, rnethods. and personnel of the inteiligence service are at risk of exposure. As \vas noted in the 1996 Auditor General's review of the Canadian intelligence community. "secrecy is an invaluable resource for intelligence agencies. for if their sources and rnethods become known, the targets of their investigations will react to protect their secrets, and access to the intelligence may be
Ios~."~'
The use of open sources to protect classified sources has aIso been seen in media reports documenting immigration cases in Canada. In the recent Federal Court hearings of Hanui
Abad Rahim al-Sayegh, there was secret evidence presented to the judge. and then a public sumrnary of the secret evidence that was publicly relea~ed.~~The public sumrnary included "hundreds of pages of media and intelligence newsletters" to support the case being made against al-~a~e~h.~~In this case, open sources were of value as CSIS did not have to reveal its sources or its operational methodology in public. The Director of the
Canadian Security Intelligence Service noted that: "open sources allow us to explain ourselves to the rest of the world without using Our secrets. It allows us to communicate without necessarily revealing our targets or how we ~perate."'~~ Open Source Information - A Tme ColIection Discipline
Protect Personal Freedoms, Reduce Intrusiveness
In addition. the collection of open source information is considerably less intrusive than covert information collection. If the information already exists in the public domain. it is available to everyone. and there is no intrusion upon individual freedoms and individual rights to privacy.
The protection of individual freedoms and privacy is essential in countnes such as Canada.
In 198 1. the Canadian report Commission of hqzriry Concerning Cerlain Activities of the
Royal Canudian Mounted Police"' included a section on information collection methods.
A concem was that although a secunty intelligence service was required to collect information. there needed to be controls in place to ensure that undue violations of persona1 privacy did not occur. This could be accomplished through ensuring strict controls over how and when intrusive collection techniques would be employed. but more importantly. it could be accomplished through a greater use of open source inf~rmation.'~'
The 1 987 Osbaldeston report, People und Process in Transition indicated that CSIS
"relied too heavily on investigative, case-oriented, covert intelligence and does not make enough use of open source infomati~n."'~'The report recommended that a greater use of open source information would help to lesson this reliance. The Security Intelligence
Review Committee's Annrtal Report 1989-90 indicated that the Solicitor General, the
69 Open Source Information - A True Collection Discipline
Honourable Pierre H. Cadieux. had issued a direction on General Principles and Policies
Governing the Conduct of Investigations. calling for a greater use of open source information. "whenever possible as an alternative to more intrusive investigations that can carry the risk of unnecessary intrusion on persona1 privacy.'""
Just a few years later, In Flux but no&in Crisis - the report of the five year review of
CSIS - devoted an entire chapter to "The Control of Investigative Techniques" in which the historical background and current practices controlling this area were investigated.
The report noted that "perhaps no area of activity by CSIS poses a greater potential threat to the rights and freedoms of Canadians than the use of intrusive investigative techniques by secret ~rganizations.'''~'While this study did not examine the use of open source information. the problems created by intrusive investigation techniques were strongly undedined.
A presentation made at the conference on open sources in Canberra in 1998 stressed that the use of open source information could prevent moving to intrusive means of collection.
Speaking specifically to the Australian example, Jason Lugh Brown noted that:
OS1 must be the first, and a continuing, port of cal1 in the development of security judgements and assessments. Without its examination, and subsequent discovery of information showing relevance, there is little justification to move on the more intrusive means. This ethical framework, based on the nature and requirements of our Society, must be the starting point for al1 intelligence activity.'06 Open Source Information - A True CoIlection Discipline
Lower Classification and Widen Distribution
Through the use of open source information, the intelligence product can be assigned a lower classification. thus allowing a wider distribution. Facts that can be obtained or confirmed in open sources. do not need to be classified. Users of the Canadian Security
Intelligence Service's CSIS Reports indicated to the Secunty Intelligence Review
Cornmittee that a report's classification as Secret limited its usefulness "since they [the reports] could not be given without censorship or special dispensation to some people who could benetit from them but did not have the required security ~learance."'~'
Numerous reports and articles in the United States have indicated the importance of the issue of classification levels hampering distribution. The people who need the information are often those who do not have the clearances at appropriate levels to read the reports.
Hence valuable information is not reaching those who need it. Lower classifications enabling the release of more information to a wider distribution would ensure that more people would benefit from the intelligence reports. As was noted by Richard S. Friedman. a retired US Colonel and senior analyst at the Central Intelligence Agency. this would be an advantage when working jointly with other agencies and countries:
A particular advantage of open source intelligence is that the product can be maintained at a low level of classification required for these sources and methods. This outcome allows relatively wide dissemination and distribution when compared with material from other sources. This characteristic of open source intelligence is particularly important in coalition ~~erations.'~~ Open Source Information - A True Collection Discipline
The Disbelievers
Fuelling the debate about the use of open source information are those who still believe that open source has no role in the intelligence product,
The difficulty the intelligence community is having in systematically integrating 'open source' collection into its structures reflects the culture of the past. 'Open source' does not fit well alongside intelligence's specialized stovepipes. On the National Intelligence Council (NIC), we used to quip that if academics sometirnes did better than intelligence analysts, it was because the former weren't denied access to open sources. Change cornes hard to this ~~stern.'~~
There is still a certain tendency. especially in the United States, to believe that open source information is not what intelligence products are made of. This tendency is encouraged through requirements and infrastructures that still favour the pre-Cold War covert nature of the collection of information and the importance accorded to classified information. As
Robert Steele, the president of the US consulting firm Open Source Solutions, indicated. there is still a "procurement system that makes it very easy to spend millions on hardware, while making it virtually impossible to subscribe to LEXIS/NEXIS or pay a consultant a quick $1,000."' 'O
The skepticism regarding open source information is furthered by public comments made by senior officiais. Frederick Hitz, CIA Inspector General, in a speech to the Princeton
Club and World Affairs Council. wœDismisse[d]open source intelligence, inside and outside
72 Open Source Information - A True ColIection Discipline of the government agencies, as merely 'a collection of newspaper stories' on various issues" and felt "open source intelligence [was] very limited and a huge mistake.""' Big.
General Robert Shea. Assistant Chief of Staff. C41, US Marine Corps questioned the use of open source information. and noted that open source information must be "approached with caution. [...] By relying on potentially tainted open source information,'you may be sending the wrong message or drawing the wrong conclusions from a database. perhaps. that is inaccurate'." Shea questioned the potential for misinformation or disinformation. particularly if using a "potentially tainted open source of information. It should be noted however. that Shea seemed to be Iooking at the Internet as the "potentially tainted database" from where this faulty information would be coming.' "
As Robert Steele noted, "There is a natural tendency on the part of the 'old boys7 to Say that OSCMT is al1 well and good. but not for critical national secunty issues."'" These individuals dismiss open source information as being limited, a bunch of newspaper stories. inaccurate and not worthy of inclusion when the issue is national security.
However. it would appear from their own statements, that these same individuals are unaware of the nature of open source information, the range of resources available. the accuracy and reliability of many of the sources, and the increasing esteem in which open source information is held. Open Source Information - A True Collection Discipline
Were these '-disbelievers" to look at the advantages of using open source information, and the value of open source information combined with the impact of its use in the intelligence product. perhaps they would reconsider the need for a true al1 source intelligence product. Open source use should be taken seriously. especially given the 1996
US report. Preparing for the ZIsr Cenfury:An Appraisal of US Intelligence. Chapter 8 included a section entitled "Making Better Use of Open Sources" which noted the importance of open source to the analyst preparing the intelligence product:
While the use of secret information distinguishes finished intelligence from other analysis. no analyst can base his or her conclusions solely on secret information without considering what is on the public record. Indeed, analysts must have command of al1 relevant information about their subjects, not sirnply command of secret information.' '"
The section "Making Better Use of Open Sources" concluded with an expression of dismayed surprise that open source appeared to have neither the place it deserved in the intelligence community nor the priority its irnplementation should receive:
Knowing what is publicly available enables producers and collectors of intelligence to better focus their efforts on that which is not. So crucial is this determination to the overall intelligence process that the Commission finds it surprising that more emphasis has not been given this aspect of the Intelligence Cornmunity's operations. An adequate cornputer infrastructure to tie intelligence analysts into open source information does not appear to exist. In the view of the Commission, the creation of such an infrastructure should be a top priority of the DCI and a top priority of funding.' l5 Open Source Information - A True Collection Discipline
Conclusion
Open source information is of value to the intelligence product. The use of open source
information can ensure an efficient use of finances and of personnel resources, as well as a
more focussed use of these same resources. Open source information can corroborate or
refute information that is classified or that is covertly acquired. When there is a
requirement to supplement and enhance existing information, open source can complete the picture. As such, open source can provide new information that was hitherto
unknown. while providing a context to the disparate pieces obtained through classified documents or from covert coI1ection. In addition. open source information assists analysts
in zvoiding bias and mirror-imaging. Collection of information through open sources is less intrusive than covert collection, and can protect persona1 freedoms and privacy.
Information obtained from open sources can be used to lower classification of the intelligence product, thereby widening its distribution. Finally. intelligence services can use open source information to protect covert sources and operational methodology.
While there are certain public statements which would imply that there are those within the intelligence community who do not agree with the merits of using open information, these same staternents confirm that these individuals are unaware of the true nature or scope of open source information. Upon learning of the value of open source information in the intelligence product. these views might be changed. Open Source Information - A True CoIlection Discipline
Open source information has a place within the intelligence process and is of value in the intelligence product. As former CIA director Allen Dulles noted in 1963,
In countries that are free. where the press is free and the publication of political and scientific information is not harnpered by the government, the collection of overt intelligence is of particular value and is of direct use in the preparation of our intelligence estimates.' l6
Endnotes
1. "So What 1s Open Source?" Horizons: Newsletter of the Communiiy Open Source Program, Vol 1.1 (November 1996) pp. 1-2.
2. Leo D. Carl. The CIA Insider 's Dictionary of US and Foreign Intelligence, Counterinrelligence and Tradecraft, (Washington, DC: NIBC Press. 1996) p. 695.
3. Privately published information would include a work which has been written and distributed by one individual. usually the author, without the assistance of an organization or a publishing house. This may be in pnnt or electronically.
4. United States. CIA. Director of Central Intelligence Directive 2/12: Communiiy Open Sorrrcr Progrum. http:l/~.fas.org/irp/offdocs/dcid212.htm downloaded 2000.04.02.
5. Leo D. Carl. Internurionai Dictionary of Inrelligence, (McLean, VA: IDCS, Inc. 1990) p. 189.
6. Cd, The CIA Insider S Dictionary, pp. 432-3.
7. Norman Polmar and Thomas B. Allen, Spybook: The Encyclopedia ofEspionage, (New York: Random House, 1997) p. 41 4.
8. Sherman Kent, Strategic Intelligence for American World Poiicy, (Princeton, NJ: Princeton University Press, 1949) p. 2 15.
9. Allen Dulles, The Crafr of Intelligence, (Boulder, CO: Westview Press, 1963) p. 55. Open Source Information - A True Collection Discipline
1 0. Abram N. Shulsky. Silent Warfare: Understanding the World of Intelligence. Second Edition, Revised by Gary Schmitt (Washington, DC: Brassey's, 1993) p. 40.
1 1. Ibid.. p. 41.
12. Canada. Security Intelligence Review Cornmittee, Annzral Report 1987-88 (Ottawa: SIRC. 1988) p. 17.
1 3, Canada. Auditor General, "The Canadian Intelligence Comrnunity : Control and Accountability." [Chapter 271 Annual Report 1996 (Ottawa: Office of the Auditor General. 1997) para. 27.9.
1 4. Canada. Canadian Secutity Intelligence Service. Public Report 1991. (Ottawa: CSIS, 1992) p. 13 and Canada. Canadian Security Intelligence Service. "CSIS and the Security Intelligence Cycle." Backgrounder Series No. 3 (Ottawa: CSIS, 1996) p. 2.
15. Harold Brown and Warren Rudman, Preparingfor the Zlst Century: An Appraisal of US Intelligence, Report of the Commission on the Roles and Capabilities of the United States Intelligence Community (Washington, DC: US GPO, 1996) p. 5.
16. Nola Watson, "Open Source Information in Law Enforcement," ADSC Conference, Optimising Open Source Information (Canberra, 7-8 October 1998).
17. "CIA Inspecter General Offers Thoughts On CIA's Role, Says Open Source Intel - Waste of Time and Money'." Sources Brie$ng, Vol. 1. Issue 14 (6 January 1 998).
18. Car!. CIA Insider's Dictionary. p. 299.
19. Kent. Strutegic Infelligence, pp. 2 14-5.
20. Robert Steele. "Open Source Intelligence: What 1s It? Why 1s it Important to the Military?" Americun Intelligence hztrnal(l996) p. 35.
2 1. Carl. CIA Insider S Dictionary, p. 291.
22. J. F. Holden-Rhodes, Sharing the Secrets: Open Source Intelligence and The War On Drugs, (Westport, CT: Praeger. 1994) p. 1 1.
23. Idem.
24. Shulsky, Silent Warfare. p. 8. Italics in text.
25. Paul Wallner, Persona1 interview, (Ottaw- 30 July 1999). Open Source Information - A True Collection Discipline
26. Brown and Rudman. Preparing for rhe ZIst Cenrury, p. 5.
27. Ibid.. p. 9 1.
28. Central Intelligence Agency : http://www.cia.gov.
29. Par1 iarnent of Canada: http://www.parl .gc.ca.
30. United States. Foreign Broadcast Information Service. *'Directory of Products and Services." (Washington. DC: FBIS, July 1998).
3 1. Foreign Broadcast Information Service: http://wnc.fedworId.gov.
32. Centre for Conflict Studies: http://www.unb.ca/web/arts/CCS.
33. Centre for MiIitary and Strategic Studies: http://www.stratnet.ucaIgary.ca/about/main. html.
34. Rand: http://www.rand.org.
36. Oxford Analytica: http://www.oxfordanalytica.com.
37. Hizb al-Tahrir: http://ww.hizb-ut-tahrir.org.
39. Aryan Nations: http://www.christian-aryannations.com tested.
40. Mark Macaskill and Nicholas Rufford, "London-based Muslim Calls for Holy Wu," London Times (5 September 1999).
4 1. See, for example, Jacqueline de Gier, "A 'Terrorist' At Peace," Narional Post (20 February 1999) for an in-depth interview with the Kurdish PKK leader Abdullah Ocalan, and interviews with Osarna Bin Laden on the BBC (20 February 1997) and another on CNN (1 1 May 1997). Hanui al-Sayegh, who was deported fiom Canada in 1997 for his alleged part in the al-Khobar bombing, gave an in-depth interview (frorn the detention centre in Ottawa where he was being held) to the Arabic publication London al-Majallah (20 Apri 1 1997).
42. American Interagency Gray Literature Working Group, "Gray Literature Functional Plan," (1 8 January 1995). Quoted in Mason H. Soule and R. Paul Ryan, "Gray Open Source Information - A Tme Collection Discipline
Literature," IT SummIT. (Columbus, OH, 10 August 1995) http://www.dtic.rnil/summit/index.html downloaded 99.10.17.
43. Soule and Ryan. "Gray Literature."
44. "Belgrade hackers hit NATO's Web site," The Ottawa Citizen (1 April 1999).
45. John Schwartz. Ariana Eunjung Cha, and David A. Vise, "Hackers Attack Top Web Sites For Third Day: Govenunent Launches Probe," Washington Post (1 0 February 2000).
46. John Schwartz. "Hackers Do A Number On the CIA: Alterations Make A Mess of Agency's Home Page," WashingfonPost (20 September Z 996).
47. J. Lee and Richard Reynolds. "CSIS Gets Name Changed By Cyber-Terrorist Hackers." CBC National ( 1 9 August 1999).
48. "Dubious Web sites show perils of propaganda," The Ottawa Citizen ( 1 Apd 1999).
49. Genie Tyburski, "High Hopes for Newer Search Technologies," http://www.Ilrx.corn/coIumns/searchtech.hm downloaded 99.09.07.
50. Dialog: http://www.dialog.com.
52. Dow Jones International: http://www.djinteractive.com.
53. Quicklaw: http:Nwww.quicklaw.com.
5 5. Dun & Bradstreet: http://www.dnb.com.
56. United States, Central Intelligence Agency, Factbook on Intelligence, Fiftieth Anniversary Edition (Washington, DC: CIA. 1997) p. 13.
57. See Canada, Canadian Security Intelligence Service, "CSIS and the Intelligence Security Cycle."
58. See the conference proceedings from the ADSC Conference, Optimising Open Source Information (Canberra, 7-8 October 1998) and the AIPlO Journal from the Australian Institute for Professional Intelligence Officers. Open Source Information - A Tme Collection Discipline
59. Open Source Solutions. "Chapter 7: Conclusion: Collecting and Processing Open Source," Open Source intelligence Handbook (Washington, DC: OSS. 1996).
60. United States. COSPO. Inielligence Community Open Source Strategic Plan 1998- 2002, (Washington, DC: COSPO, 1998) p. 23.
6 1. Ibid.. p. 23.
62. Dean Joseph S. Nye Jr.. "Testimony." Hearing of the Commission on the Roles and Capubilities Of the Uniled States Intelligence Cornrnunity. (Washington. DC: 19 January 1996) http://www.fas.org/irp/commission~testnyehtdownloaded 99.07.07. Dr. Nye is the Dean of the Kennedy School of Govemment at Harvard, and has served as the Chainnan of the National intelligence CounciI (US).
63. Peter Grose. Genileman Spy: The L$e ofAllen Dulles. (Boston. MA: Houghton Mifflin Co.. 1994) p. 275.
64. Ladislas Farago, War of Wirs: The Anatomy of Espionage and Intelligence, (New York: Funk & Wagnalls Co.. 1954) p. 53.
65. Kent. Strategic inrelligence. p. 2 15.
66. Ward P. D. Elcock, "Remarks," CASIS Conference. (Ottawa, 28 October 1994).
67. Nye Jr.. "Testimony."
68. Ward P. D. Elcock. -*Personalinter vie^,^ (Ottawa. 17 March 2000).
69. lan Dudgeon. "Does Covert Intelligence Have A Future?" ADSC Conference. Optirnising Open Source information (Canberra, 7-8 October 1998) p. 4.
70. Idem.
7 1. Rick Bennett, *-PersonalInterview," (Ottawa, 17 March 2000).
72. Kent. Stratcgic intelligence, p. 220.
73. Anthony Stuart Farson, "Does Intelligence Have A Future? Should It Be Reinvented?" (Ottawa: Privy Council Office, 1997).
74. United States, Transportation Command, Joint Intelligence Center, Colonel J. D. Wilson, *'Open Source," Open Source Solutions Conference (Washington, DC, 24 May 1999). Open Source Information - A True Collection Discipline
75. Canada, Senate. The Report of the Speciul Senate Cornmittee on Secztriiy und lnielligence. Chaired by The Honourable William M. Kelly (Ottawa: SuppIy and Services Canada. January 1999) p. 54.
76. United States. Secretary of State. "Oral Presentation by Under Secretary of State Thomas Pickering on june 17 to The Chinese Govenunent Regarding The Accidental Bombing of The PRC Embassy in Belgrade." (6 July 1999) http://www.fas.org downloaded 2000.02.27.
77. Idem.
78. Idem.
79. Idem.
80. United States. Transportation Command, Joint Intelligence Center. Colonel J. D. Wilson. "Open Source."
8 1. IDC is the Interdepartmental Cornmittee for the Acquisition of Foreign Publications. The IDC's role in WWII was to obtain foreign publications for US departments and agencies.
82. Robin W. Winks. Clouk and Gorvn: Scholars in rhe Secret War, (New York: William Morrow. 1987) pp. 105-1 06.
83. Farago. War of Wits. pp. 55-57.
84. United States. Transponation Command, Joint Intelligence Center. Colonel J. D. Wilson. "Open Source."
85. Bennett. "Personal Interview."
86. Allan E. Goodman. Gregory Treverton and Philip Zelikow, In From the Cold: The Report of the Twenrieth Century Fund Task Force on rhe Future of US Intelligence ('New York: Twentieth Century Fund Press, 1996) p. 43.
87. Shulsky, Silenr Warfare. p. 75.
88. Ibid.. see pp. 75-6,and p. 237 fn. 63.
89. Ibid., p. 77. Open Source Information - A True Collection Discipline
90. Lori Schnittker. "Use of Open Sources in the Criminal Intelligence Prograrn of the Royal Canadian Mounted Police," Open Source Solution Conference (Washington, DC. 7-9 November 1995) p. 263.
91. Elcock. "Persona1 Interview."
92. Idem.
93. Bennett. "Persona1 Interview."
94. Lori Schnittker. "Use of Open Sources in the Criminal Intelligence Program of the Royal Canadian Mounted Police." Open Source Solution Conference (Washington, DC. 7-9 November 1995) p. 263.
95. Farson, "Does Intelligence Have A Future?"
96. Brown and Rudman. Preparing for the 2lst Century, p. 10.
97. Canada. Auditor General. "The Canadian Intelligence Community." para. 27.10.
98. Estanislao Oziewicz. "Hezbollah Member Helped CSIS Deportee: Provided Security Service with Evidence Group Set Up Operations Base in Canada," Globe and Mail (7 April 1997).
99. Idem.
100. Elcock. "Persona1 interview."
10 1. Canada. Commission ofinqziiry Concerning Certain Activities of the Royal Cunadian Motinted Police, (Ottawa: The Commission, 1 98 1 ).
102. See Chapter 4: Canada and Open Source Information. The McDonald Commission.
103. Gordon F. Osbaldeston. People and Process in Transition: Report tu the Solicitor General (Ottawa: Solicitor General of Canada, 1987) p. 1 8.
104. Canada, Security Intelligence Review Comminee, Annual Reporf 1989-90, (Ottawa: SIRC, 1990) p. 6.
1 OS. Canada, House of Commons, Special Cornmittee on the Review of the Canadian Securiry Intelligence Service Act and the Sectirity Oflences Act, in Flux Bztt Nat in Crisis, (Ottawa: Supply and Services Canada, September 1990) p. 109. Open Source Information - A Tme Collection Discipline
106. Jason Lugh Brown. "Open Source Information and the Intelligence Based Decision Model." 1998. ADSC Conference, Optimising Open Source Information (Canberra. 7-8 October 1998).
107. Canada Security Intelligence Review Cornmittee. Annual Report 1987-88, p. 39.
108. Richard S. Friedman, "Open Source Intelligence." Paramefers. Vol. XXVIII, No. 2 (Summer 1998) http://carlisle-www.army.mil/usawc/P ararneters/98summer/sum- essa.htm#Friedm dowloaded 1998.1 1.18.
109. Goodman. et al.. In From the Cou. p. 109.
1 IO. Robert D. Steele, "Private Enterprise Intelligence: Its Potential Contribution to National Security" in David Charters. et al ., Intelligence Analysis and Assessrnent (London: Frank Cass, 1996) p. 227. fn. 1 1.
1 1 1. "CIA Inspector General Offers Thoughts On CIA's Role."
1 12. YJSMC C41 Commander Says Some Open Source tnfo Must be Weighed CarefuIIy," Sotrrces Briefing? Vol, 1, Issue 32 (25 November 1998).
1 1 3. Steele. "Private Enterprise Intelligence," p. 2 15.
1 14. Brown and Rudrnan, Preparing for the 2 1st Century, p. 88.
1 15. ïbid., pp. 88-89.
1 16. Dulles, The Crafr of Intelligence, p. 56. CHAPTER 2 - INTELLIGENCE PRODUCTION
The term inteiiigence seems to be everywhere these days. It is in cornpetitive intelligence and business intelligence. and there are consulting groups and companies - with the word intelligence somewhere in their narne - that provide various levels of what they name "intelligence products." Security intelligence produced by an intelligence service such as the Canadian Security Intelligence Service (CSIS) is not dissimilar to this private sector intelligence. but it has characteristics that make it unique. Prepared using the inteIligence cycle. the intelligence product is provided to assist government leaders and policy makers in making decisions regarding national security. The intelligence cycle involves direction. planning, collection, analysis and dissemination, a process which allows for the creation of a variety of intelligence products. The area of interest to this study is the collection of open source information for use in the intelligence product.
Intelligence - What It 1s
The frequency with which we currently see the tenn intelligence raises the question of what is intelligence, and what is inteIIigence in relation to an intelligence service? In the many definitions that exist for intelligence, be it of the national security kind or the private sector kind. the common element is that intelligence is a product resulting from the analysis of information that has been culled fiom a variety of sources. Open Source Information - A True Collection Discipline
What makes it the intelligence of an intelligence service? There was a time when
intelligence services were unique in their use of highly trained intelligence officers and
intelligence analysts who interpreted information specifically for intelligence work. Today
however. a number of these individuals are in the private sector. selling these same skills,
so they are no longer the sole preserve (and a distinguishing feature) of intelligence
prepared by intelligence services.
There are two factors in particular that contribute to the distinctive nature of the
intelligence product prepared by intelligence services - the use of classified information,
and the focus of the intelligence to assist leaders and policy makers to make informed
decisions on issues of national security. The first characteristic was defined in a report by
the Auditor General of Canada, where it was noted that intelligence was
information needed by the government that. in whoIe or in part, is not available from conventionaI sources. The distinguishing characteristic of intelligence. therefore. is that it requires having access to information collected by "secret," or clandestine, means.'
John MacCartney, a former intelligence officer and Commandant of the Defense
Intelligence College. indicated in his book Intelligence and How To Use If, that "most
intelligence information cornes from open sources - news stories, diplornatic reporting, and common knowledge. But intelligence is distinguished by its classified information and sources, which are not available to everyone."' Open Source Information - A True Collection Discipline
The second important feature is analysis. An intelligence service produces intelligence from information culled from open source, which is cornbined with secret information.
Once analysed. this becomes what is called an al1 source intelligence product. A description of intelligence which described this characteristic was noted by Abram Shulsky in his insightful book Silenr Warfare:
No matter how good the collected information is, however, it almost never speaks for itself. In other words. sorne anabis [sic] of the information is necessary for it to be useful when formulating and implementing foreign policy or military activities. In the vast majority of cases, the collected information is fragmentary, ambiguous. and susceptible to widely divergent interpretations. Thus, the process of analyzing the avaiIable information to make judgements about the capabilities, intentions, and actions of another party is a vital part of the intelligence pro ces^.^
The importance of analysis was noted as well by the Canadian Security Intelligence
Service.
regardless of the source of intelligence, it provides a value in addition to what can be found in other government reports or in news stories. IntelIigence conveys the story behind the story. The 'value-added' cornes from analysis and a wide variety of investigative techniques. 4
Intelligence - Definitions
Sherman Kent wrote in 1949 in his classic book, Srraiegic intelligence for American
World Policy. that intelligence was in reality both self-evident and a daily occurrence: Open Source Information - A Truc Collection Discipline
Although there is a good deal of understandable mystery about it Intelligence is a simple and self-evident thing. As an activity, it is the pursuit of a certain kind of knowledge: as a phenornenon it is the resultant knowledge. In a small way it is what we al1 do every day. [...] But no matter whether done instinctively or with skillfut conscious mental effort intelligence work is in essence nothing more than the search for the single best answer.'
In his book. War of Wits: The Anatomy of Espionage and Inlefligence. Ladislas Farago noted that intelligence was the result of information that had been collected. appraised. and pieced together much as a puzzle, with the goal of predicting what the future might
As a function or activity. intelligence is the organized effort to collect information, to appraise it bit by bit. and to piece it together until it forms larger and clearer patterns which in turn enable us to see the shape of things to corne. It is a perpetual effort to pierce the fog of war and diplomacy so that we may draw with bold strokes the contours of tomorrow."
In the CIA Insider S Dictionury. Leo Car1 provided the following definitions of intelligence for the American intelligence community:
Intelligence: ( 1) the product resulting from the collecting and processing of information conceming actual and potential situations and conditions relating to domestic and foreign activities and to domestic and foreign or US and enemy-held areas. This processing includes the evaluation and collation of the information obtained from al1 available sources, and the analysis, synthesis and interpretation thereof for subsequent presentation and dissemination. It can also be defined as the product resutting from a series of organized phases or steps known as the 'intelligence cycle,' q.v. ;
Intelligence: (2) official intelligence-community (IC) definition: '(1) A Open Source Information - A TN~CoIiection Discipline
body of evidence and the conclusions drawn therefrom which is acquired and furnished in response to the known or perceived requirements of customers; it is often derived from information which is concealed or not intended to be available for use by the acquirer; it is the product of a cyclical process (Also see intelligence cycle.)' '
While there is no CIA Insider S Dictionary equivalent for Canadian terrns, various definitions can be found in assorted Canadian intelligence community documents. In the
Security intelligence Review Committee's (SIRC) Annual Report 1987-88, intelligence was dehed as "information sified and arranged in such a way as to help users make the right decisions.'" As we have seen, the Auditor General defined intelligence as
"information needed by the government that, in whole or in part, is not available from conventional sources. The distinguishing charactenstic of intelligence, therefore, is that it requires having access to information collected by gbsecret,''or clandestine, means."' This definition would exclude an intelligence product based entirely on open source information
In Canada. the phrase securiry intelligence is defined more frequently than intelligence.
The Canadian Secunty Intelligence Service Backgrounder Series entitled 'The CSIS
Mandate" provided the following definition for securiw intelligence:
Security intelligence is information fomulated to assist governrnent decision makers in developing policy. Regardless of the source of intelligence, it provides a value in addition to what cm be found in other government reports or in news stories. Intelligence conveys the story behind the story. Open Source Information - A True Collection Discipline
The 'value-added' cornes from analysis and a wide variety of investigative techniques, including the use of covert and intrusive methods such as electronic surveillance and the recruitment and tasking of human sources. 'O
In 1996. a review of the Car,adian intelligence community categorized secunty intelligence as: "information about activities that could threaten Canada's security. such as espionage. sabotage. foreign-influenced activities or politically motivated violence. It is collected to help maintain public safety and protect national security."" The focus here is not so rnuch on what information is collected from where, or whether the infomation is open or secret, but what activities would be reviewed under the heading of secunty intelligence.
The components of intelligence, then, are the collection of material from a wide-range of open and classitïed sources, including the use of covert means of collection and human sources, and the analysis of this information. Added to collection and anaIysis is the importance of the purpose, or the objective. in creating intelligence products - which is to advise government decision makers and policy makers on issues of national security.
Intelligence Cycle
To create intelligence, there is a commonly recognized intelligence cycle. The intelligence cycle spans the entire process of intelligence production, from the first instruction of what intelligence is required to the final intelligence product being delivered in the hands of the Open Source Information - A Tme Collection Discipline requester.
There are four basic stages in the intelligence cycle:
information requirement collection analysis dissemination
Sornetirnes this cycle is expanded to include five stages. The fifih stage could be planning, which would be inserted between the information requirement and the collection of information. Also. the fifth stage could be the separation of analysis into two stages, which would be processing and producing.
According to the Amencan CIA Insider's Dictionary. the official intelligence community definition of the intelligence cycle is "The steps by which information is acquired and converted into intelligence, and made available to customers. There are usually five steps in the cycle." The five steps here include processing and producing instead of analysis."
The Canadian Security Intelligence Service indicates five steps in its intelligence cycle: govemment direction, planning, collection, analysis and dissemination."
Sherman Kent discussed the process of intelligence as consisting of: Open Source Information - A True Collection Discipiine
two sorts of operations. 1 have called thern the surveillance operation, by which 1 mean the many ways by which the contemporary world is put under close and systematic observation. and the research operation. By the latter 1 mean the attempts to establish meaningful patterns out of what was obsewed in the past and attempts to get meaning out of what appears to be going on now. The two operations are virtually inseparable, though for administrative and other reasons they are often physically separated. [...] But however fm apart they get on the administrative diagrarn or in the development of their own techniques they are closely bound together by their own common devotion to the production of knowledge.'"
Information Requirement
For an intelligence service, the information requirement is the direction given by the government. or in some cases by government departments or agencies. as to what intelligence is required. This could include annual requirements, established in general terms. or more specific issues or incident-oriented requirements which might arise throughout the year. In Canada, government priorities are established on a regular basis and comrnunicated to the Canadian Security Intelligence Service by the Solicitor General.
In addition. CSIS reviews its intelligence priorities each year and makes adjustments based on changes in the Canadian security en~ironrnent.'~
Between receiving direction from the government and the collection stage, CSIS adds a stage entitled planning. The planning stage is where decisions are made about what type of information is required, the degree to which information may be obtained through open sources or whether more intrusive methods are required. Whatever the strategy, al1 Open Source Information - A True Coilection Discipline investigations in Canada follow stnct guidelines, as detailed in section 2 1 of the CSZS Act, requiring judicial authorization before any intrusive techniques rnay be used.I6
Collection
The collection stage in the intelligence cycle is a crucial one. This is where information is gathered which then will be analysed to produce the intelligence product. Information can come from a variety of human and technical sources, which is usually covertly collected information. and as well from the collection of open source information. The information which is collected both covertly and openly may be classified or unclassified. The CIA's
Facthook on Intelligence describes three types of collection: open source reporting, secret sources of information. and technical collection."
For CSIS. -'collection [of information] is the preliminary phase of the Service's advisory role to govemment."l% is noted in CSIS documentation that this information could come from open sources. from members of the public, from foreign govermnents, and from technical interception of communications. In addition, CSIS security liaison officers at
Canadian diplomatic posts overseas collect pubiicly available information which may be of interest to the national security of Canada.I9 Open Source Information - A True Collection Discipline
Collection Disciplines
Collection disciplines are types of information and intelligence which are collected for an intelligence service. Each of the collection disciplines is known by its short form INT name. which is based on the type of information or intelligence being collected. The collection disciplines include:
ACOUSTINT (acoustic intelligence) COMINT (radio communications intelligence) ELINT (etectronic signals interception intelligence) HUMiNT (human intelligence) IMNT (imagery intelligence) MAS NT(measurements and signature intelligence) MEDINT (medicai intelligence) NUCiNT (nuclear intelligence) OSINT (open source intelligence) PHOTINT (photographic intelligence) RADINT (radar intelligence) SIGiNT (signals intelligence) TECHINT (technical intelligence) TELINT (telemetry intelligence)
The collection disciplines are sometimes divided into what are considered to be the main disciplines and then the remaining ones. The main disciplines are generally recognized to be HUMMT. IMAGMT and SIGMT. Open source, while included here, is not generally included in lists of collection disciplines. Open Source Information - A Tme Collection Discipline
Michael Herman's book Intelligence Power in Peace and War has a chapter entitled
"Collection Sources," where he lists the main collections as HUMINT, SIGNT and
IMAGERY. followed by the "other smaller sources" such as NUCINT, RADINT,
ACOUSTINT. and non-technical means such as letter opening.'O While open source is noted as a component that is included in the intelligence product, Hemm does not include open source collection as one of the collection disciplines.
In the United States, the Brown Commission's report Prepuring for the 2Zsr Century indicated that the principal collection disciplines are HUMINT, SIGiNT, IMINT, and
MASNT. and that "elaborate collection management systems exist for each of the disciplines that establish validated requirements and priorities.'? HUMINT is collected by the Central Intelligence Agency. SIGiNT by the National Security Agency. IMMT by the
Central Imagery Office and MASINT by the Defense Intelligence Agency." It is fùrther indicated that each discipline has its own structure "for translating the validated requirements into collection activities in its area."" OSMT is not mentioned in the
Appendix section entitled "Collection and Analysis - Collection and the Collectors" and there are no indications as to what structure is in place to enswe the co!lection of open source inf~rrnation.'~
Al1 of these MTs in the collection disciplines are regarded as important components which are necessary to the production of intelligence, and there are dedicated organizations that
94 Open Source Information - A Tme Collection Discipline are tasked specifically to collect each particular intelligence. Open source intelligence is usually excluded from this process.
A nalysis
When the various types of information and intelligence from al! available sources have been collected. they are analysed and fonned into an al1 source intelligence product.
Specialized analysts - trained in the formulation of intelligence - study the information from both open and classified sources, draw their conclusions and formulate their reports.
Barry Denofsky. then Director General of the Analysis and Production Branch of CSIS. noted in 1998 the role of CSIS in preparing these reports: "Our task is not to pretend to divine the future, but to ensure that as an organization we are able to advise govenunent on challenges to national secunty and public safety."'"
In Canada. regional CSIS investigators make an initial assessrnent of their information before transmitting it to the national headquarters in Ottawa. At the headquarters, the information undergoes a "second-phase analysis" to take into consideration various national concerns. This information is then combined with open source information and other information obtained from various government departments and agencies (both
Canadian and foreign) to fom a final product." Open Source Information - A Tme Collection Discipline
Dissemin ation
In Canada. the main role of CSIS is to provide information. As such. the intelligence products produced by CSIS are disseminated to the Govemment of Canada, as well as various departments and agencies as established in section 19 of the CSIS Ac[. Examples of departments receiving CSIS intelligence products. as noted in relation to the various prograrns of CSIS. include Citizenship and Immigration Canada. Foreign Affairs and
International Trade. the Royal Canadian Mounted Police, and various law enforcement agencies.
Dissemination ensures that the finished intelligence product reaches its intended audience.
The fom of the dissemination of intelligence could include formal reports. written documents. oral briefings. single issue updates, telephone calls or personal conversation^.'^
As was noted by Shulsky, "the product of the intelligence process can be any means, from a forma1 report to a humed conversation. by which an intelligence analyst transmits analyzed information to the policymaker or military commander who needs it and can use it.*y77 The breadth of dissemination will be dependent upon the security classification assigned to the product and the relevancy of the topic to a given department. Open Source information - A True Collection Discipline
CSlS Intetligence Products
The mandate of the Canadian Security Intelligence Service is to collect information and to advise government regarding "activities that may on reasonable grounds be suspected of constituting threats to the security of Canada.'"8 At the fundamental level, CSIS prepares secut-ity intelligence and foreign intelligence. Security intelligence is intelligence relevant to the identification and assessment of threats - as defined in section 2 of the CSIS Act - to the security of Canada. This includes both operational and strategic intelligence.
Foreign intelligence is intelligence related to the abilities. activities or intentions of foreign
States (or organizations or individuals) in relation to the defence of anad da.'^
The security intelligence produced by the Canadian Secunty Intelligence Service includes both operational and strategic intelligence. As defined in the report People and Process. the case-oriented operational intelligence is "related to the investigation of particular activities considered threatening to the security of Canada."j0 This intelligence is produced by the operational branches in CSIS, is usually short term, and produced for either a specific consumer or for a specific purpose. Strategic intelligence, produced by the analysis branch. which in 1987-88 was called the APB but which today is the
Requirements, Analysis and Production Branch (RAP), is more broadly based. is longer term and more global in nature. Strategic intelligence includes current intelligence, which focuses on events as they happen. and alerts decision makers, and basic intelligence, which
97 Open Source Information - A Tme Coiiection Discipline is the in-depth analysis on countries and topics producing a longer term overview." In the exarnple provided in the SIRC Annual Reporr 1987-88 to illustrate the difference between operational and strategic intelligence. there was an hypothetical meeting of two individuals deemed to be a threat to Canadian security. The operational branches would confirm the actual meeting. the location and what was said. Current intelligence would indicate the background information of who was with which group and background details on the group, while basic intelligence wouid look at the overall strategic implications of the meeting.''
Operational intelligence is prepared by the operational branches of Counter Terrorism
(CT), Counter Intelligence (CI) and Security Screening (SS). As was noted in the CSIS
Public Reporf 1998. the areas of responsibility for each of the operational branches within
CSIS are as follows:
1. Counter Terrorism (CT): Threat Assessments; 2. Counter Intelligence (CI): Economic Security, Foreign-Influenced Activity, Information Operations. Proliferation. Transnational Crime; 3. Security Screening (SS): Government Screening, Immigration / Citizenship Screening."
The Counter Terrorism branch prepares threat assessments which indicate if there is a potential terrorist threat posed by any individuals or groups both in Canada and abroad.
Threat assessments cover incidents and events happening in Canada, such as the Open Source Information - A True Collection Discipline
Francophonie gathering in Moncton in 1999 and the APEC conference in Vancouver in
1997. In addition, they may also cover Canadian individuals traveling abroad and Canadian interests in foreign countries. In 1998, CSIS provided 688 comprehensive threat assessments to the Canadian go~ernment.~
Economic security. foreign-intluenced activity, information operations, proliferation, and transnational crime are al1 activities covered by the Counter Intelligence branch. Under economic security. CSIS will monitor and investigate. if necessary. activities by foreign governments that are potentially detrimental to Canada's economic and commercial interest~.~'
Advances in technology and cryptography, and the potential vulnerability of Canadian cyber-assets have made Information Operations an area of concem. The CI branch provides Govemment with an assessment of the potential threat to public and private holdings from foreign governments or individuals of a security concem.j6 While Canada has no weapons of mass destruction, it does have dual use technologies and expertise that are of interest to countries of proliferation concem. CSIS identifies attempts to acquire
Canadian technology, materials and expertise, especially where these activities may constitute a threat to the security of canada.)' When it cornes to transnational crime, CSIS prepares long-term strategic intelligence on the extent and nature of transnational crime in
Canada, and assesses the extent of the threat and which areas are at risk." Open Source Information - A True Collection Discipline
Secunty Screening is responsible for governrnent screening, as well as immigration and citizenship screening. Under section 13 of the CSIS Act. CSIS prepares security assessments for those individuals in the public sector who require security clearances.
Under section 15 of the CSlS Act. CSIS assists Citizenship and Immigration Canada (CIC) in the process of screening Canadian visitor visa applicants and prospective immigrants.
This includes providing input into the Enforcement Information Index (EII), which is an automated Citizenship and Immigration Canada system that indicates individuals suspected of involvement in terrorist activity. and the threat to national security posed by suspected and known terrorists. In addition, CSIS works closely with CIC, providing advice regarding security inadmissibility criteria (as detailed in section 19(l) of the lmrnigrution
Act) on prospective immigrants and reîugee claimants. and providing security assessments on those applying for Canadian citizenship.j9
Strategic intelligence is prepared by the Requirements, Research and Analysis Production branch. known as RAP. Environmental Scanning involves the review of information to study trends and to ascertain potential global and national implications. RAP prepares reports for CT, CI, SS and various governrnent departments. Unclassified reports are made available to the Open Source Information - A Tnie Collection Discipline
Conclusion
Intelligence is the analysis of information from open and classified sources. This information is forrnulated into intelligence products which are prepared to assist the governrnent in making dec isions relating to national security. Intelligence produced by intelligence services is unique in that it uses classified information, and that the analysis is done to assist policy makers on issues of national security. The intelligence cycle - which includes receiving direction from government. planning. coIIecting information, analysing information and then disseminating the final intelligence product - is followed as the basic process to prepare intelligence. Through the use of collection disciplines. such as
HUMNT, SIGINT and TECHINT, the required information is collected that will then be analysed.
The Canadian Security Intelligence Service prepares security intelligence and foreign intelligence. Under secunty intelligence, CSIS prepares a w-ide range of intelligence products through the operational prograrns of Counter Terrorism, Counter Intelligence and Security Screening. In addition, the Requirements, Analysis and Production branch produces strategic intelligence, including both current intelligence and basic intelligence. Open Source Information - A Tme Collection Discipline
Endnotes
1. Canada. Auditor General, "The Canadian Intelligence Comrnunity: Control and Accountability." [Chapter 271 Annual Report 1996 (Ottawa: Office of the Auditor General. 1997) para. 27.9.
2. John Macartney. Intelligence: What It Is and How To Use Ir, Intelligence Profession Series. No. 7 (McLean. VA: Association of Former Intelligence Officers. 1991) p. 8.
3. Abram N. Shulsky. Silent Ckrfare: Understanding the World of Inrelligence, 2nd ed., revised. Revised by Gary J. Schmitt. (Washington, DC: Brassey's (US). 1993) p. 8.
4. Canada. Canadian Secunty Intelligence Service. "The CSIS Mandate." Backgrounder Series No. 1 (January 1996) p. 4.
5. Sherman Kent. Strategic Intelligence for American World Policy, (Princeton, NJ: Princeton University Press, 1949) p. vii.
6. Ladislas Farago. War of Wits: The Anatomy of Espionage and Intelligence, (New York: Funk & Wagnalls. 1954) p. 7.
7. Leo D. Carl. The CIA Insider S Dictionary of US and Foreign Intelligence, C'ounterintelligence and Tradecrafr. (Washington, DC: NIBC Press, 1996) p. 28 1.
8. Canada. Security Intelligence Review Cornmittee, Annual Report 1987-88, (Ottawa: SIRC, 1988) p. 35.
9. Canada. Auditor General, "The Canadian Intelligence Community," para. 27.9.
10. Canada, Canadian Security Intelligence Service, "The CSIS Mandate," Backgrounder Series. No. 1 (January 1996) (Ottawa: CSIS, 1996) p. 4.
1 1. Canada, Auditor General, "The Canadian Intelligence Comrnunity." para. 27-13,
12. Carl, CIA Insider's Dictionary, p. 284.
13. Canada, Canadian Security Intelligence Service, "CSIS and the Security Intelligence Cycle," Backgrounder Series No. 3 (January 1996) p. 1.
14. Sherman Kent, Strategic Intelligence, p. 4. Italics in text. Open Source Information - A True Collection Discipline
15. Canada. Canadian Security Intelligence Service. "CSIS and the Security Intelligence Cycle." p. 2.
16. Idem.
17. United States, Central Intelligence Agency, Factbook on intelligence, Fiftieth Anniversary Edition, (Washington, DC: CIA. 1997) p. 13.
18. Canada. Canadian Secunty Intelligence Service. "CSIS and the Security Intelligence Cycle." p. 2.
19. Ibid.. pp. 2-3. and other open CSIS documentation on collection.
20. Michael Hernlan. Intelligence Power in Pence and War. (Cambridge: Cambridge University Press. 1996) p. 78.
2 1. Harold Brown and Warren Rudman, Preparing for the 2 Ist Century: An Appraisal of US Infelligence. Report of the Commission on the Roles and Capabilities of the United States Intelligence Community (Washington, DC: US GPO, 1996) pp. 16 and B-2.
22. Ibid., p. B-7.
23. Ibid., pp. B-2-B-4.
24. Barry A. Denofsky, "Continuity and Change in the Intelligence Environment," CASIS Conference (Ottawa, June 1W8), para. 68.
25. Canada. Canadian Security Intelligence Service. "CSIS and the Security Intelligence Cycle" p. 3.
26. Deno fsky. Tontinuity and Change in the Intelligence Environment," para. 5 7.
27. Shulsky. Silenr Warfi?re, p. 63.
28. Canada. Carzadirrn Security Intelligence Service Act, C hapter C-23, Revised Statutes of Canada, section 12.
29. Ibid., section 16.
30. Gordon F. Osbaldeston, People and Process in Transition: Report to the Solicitor General, (Ottawa: Solicitor General of Canada, 1987) pp. 1 8 and 39. Open Source Information - A True Collection Discipline
3 1. See also Canada. Security Intelligence Review Cornmittee. Annual Report 1987-88. p. 35 and G. Davidson Smith and Robert Fahlman, "New Eyes on the World: Training Analysts, Their Managers, and Overseers," Journal ofConflict Studies, Vol. XVI, No. I (Spring 1996) for explanations regarding the types of intelligence created by CSIS.
32. Canada. Security Intelligence Review Cornmittee, Annual Report 1987-88. p. 35.
33. Canada Canadian Security Intelligence Service, Public Report 1998. http://~.csis-scrs.gc.cadownloaded 00.0 1 -30.
34. Canada. Canadian Security Intelligence Service. "Counter Terrorisrn." http://www.csis-scrs.gc.ca downloaded 2000.01. 30.
3 5. Canada. Canadian Security Intelligence Service. "Economic & Information Secux-îty," http://www.csis-scrs.gc.ca downloaded 2000.0 1.30.
36. Canada. Canadian Security Intelligence Service. Public Reporr 1998.
37. Canada. Canadian Security Intelligence Service, "Proliferation Issues." http://www.csis-scrs.gc.ca downloaded 2000.0 1.30.
3 8. Canada. Canadian Securit-Intelligence Service, "Transnational Criminal Activity." http://www.csis-scrs.gc.ca downloaded 2000.0 1.30.
39. Canada. Canadian Secunty Intelligence Service. "Security Screening," http://www.csis-scrs.gc.ca downloaded 2000.01.30. For a complete overview of the CSIS Secunty Screening program, see G. Davidson Smith, "The Canadian Governrnent Security Screening Program." Cornrnenrary No. 76, (Ottawa: CSIS, Fa11 1999).
40. Canada, Canadian Security Intelligence Service. Public Report 1998. CHAPTER 3 - UNITED STATES & OPEN SOURCE INFORMATION
The Arnerican intelligence community currently incorporates open source information into its al1 source intelligence products. a practice which is gradudly regaining its stature afier years of neglect during the highly secretive days of the Cold War. The tradition of using open source information in the US intelligence process dates back to the first US civilian intelligence agency, the Office of the Coordinator of Information. Afier a lengthy eclipse dunng the Cold War. the Arnerican intelligence community began in the mid-1990s to re- examine the use of open source information. Subsequent to recomrnendations made in a number of reports, the creation of the Community Open Source Program and recent initiatives by various groups within the US intelligence community. the use of open source information in the United States intelligence community is growing.
Office of the Coordinator of Information
On 1 1 July 1 94 1. Franklin D. Roosevelt wrote an executive order creating the Office of the Coordinator of Information (COI), the first peacetime, civilian. intelligence agency in the United States. The secretive COI was to be headed by the New York lawyer WilIiam
Donovan. a highly decorated officer of World War 1,' who was to report directly to
President Roosevelt. Though the United States had not yet entered the Second World
War, Roosevelt recognized the need for reliable information regarding the actions and Open Source Information - A True Collection Discipline intentions of the various leaders in Europe. Donovan demonstrated to the President not only the value of obtaining this information but his ability to obtain it. The result was the creation of the COI. which enabled Roosevelt to have direct access to accurate and timely intelligence enabling him to make informed decisions.
Officially. the role of the COI was:
to collect and analyze al1 information and data which may bear upon national security; to correlate such information and data. and to make such information and data available to the President and to such departments and oficials of the Govemrnent as the President may determine.'
For Donovan. this included not only secret information or information obtained through covert means. but unclassified publicly available information. From the creation of the
COI. Donovan recognized the need for research and analysis, accumulating information as evidence as he had done during his career as a lawyer. To accomplish this, Donovan brought together a team of academics and specialists. headed by the Librarian of
Congress. Archibald MacLeish. MacLeish was to develop the Division of Special
Information at the Library of Congress. This Division was to provide unclassified information from the Library to the analysts at the COI. The COI analysts would combine this open information with their ciassified information to prepare analytical reports which would then be sent to the President. In addition, Donovan consulted with various directors of Hollywood films to help him on issues regarding the making of propaganda films.'
1 O6 Open Source information - A True Collection Discipline
Donovan also established a section in the COI called Research and Analysis (R&A). The first head was James Phinney Baxter, president of Williams College. When Baxter resigned in September 1942. he was replaced by his assistant William L. Langer. whom Baxter had recruited from Harvard.
The RBA staff never exceeded 1 .O00 individuals. They produced in-depth studies on enemy and allied countries. covenng economic. political. sociological and military subjects. as well as detailed maps. Their work also included many reports on Japan; through the study of Japanese films they wote reports on the use of films as propaganda. the social attitudes of Japan. and the level of technology available in Japan.'
Starting in the summer of 1941. Wilrnarth Sheidon Lewis became the Chief of the Central
Information Division (CID) of the Research and Analysis Branch of the COI. As the role of the COI was to gather information, it needed someone to organize this information so that it might be retrieved easily. This task fell to Lewis. and he devised an index for the initial 200,000 documents that had been obtained. This index enabled his staff to "on a day-s notice compile a list of bombings in Germany in order of their importance."5 The information contained in these documents was not necessarily classified information.
Lewis himself was known to indicate that the information in their files was .'information that almost anyone could dig out if they knew how'" Open Source Information - A True Collection Discipline
When Pearl Harbor was bombed on 7 December 1941, the President and everyone else involved realized that there had been a serious lack of communication amongst the various departments of the government, as well as with the President himself- Fragments of information which might have been pieced together to provide warning of the impending attack were not shared, were not pieced together, and were not known to al1 of those who should have known. "Intelligence had been handled in a casual. uncoordinated manner
[...]. The lack of coordination arnong agencies [...] resulted in a failure to provide tirnely dissemination of relevant information to key decisionmakers."' It was decided that a centralized intelligence service was required to examine information and intelligence which would affect not just one service, such as the Navy alone, but which would impact on the
United States as a whole.
Office of Strategic Services - Research and Analysis Braach
Subsequently. on 13 June 1942, a presidential order estabIished the Office of the Strategic
Services (OSS), to be placed under the Joint Chiefs of Staff. This replaced the COI, with
Donovan remaining as the OSS direct~r.~In addition to the analytical role of the COI, the
OSS was tasked with implementing clandestine operations in support of the Allied war effort. The OSS had nine branches: Open Source information - A True Collection Discipline
Research and Analysis (R&A) Operational Groups (OG) Secret intelligence (SI) Maritime Unit (MU) Special Operations (SO) Schools and Training (S&T) X-2 (Counter-intelligence) Foreign Nationalities (FN) Morale Operations (MO)
Research and Analysis was a non-operational and non-field branch staffed with highly trained scholars fiom major Amencan universities. The branch even acquired the nicknarne of --the campus." as many university professors and recent graduates of higher level studies were recruited directly from universities, especially Harvard and Yale. The main function of R&A was to provide strategic intelligence to those in the government who needed it. As such, the analysts of R&A scoured the information publicly available around the world to ascertain trends and to piece together as much as they could to complete the ofien obscured pictures of enemy forces and potential actions.
Because the R&A economists and historians were farniliar with the type of information which they could obtain through traditional diligent research, and because the Secret
Intelligence branch did not provide them with classified inf~rmation,~the R&A endeavoured to obtain as much open source material as they could. Using their well-honed research skills and building on their many years of using open source material as the foundation upon which to base their analysis, the staff of R&A scoured the publicly available information. Open Source Information - A Tme Collection Discipline
The Research and Analysis branch took the work initiated by the R&A branch in the
Office of the Coordinator of Information and brought it to new heights. The men and
women in this branch worked extensively to accumulate vast amounts of publicly available
information. both Amencan and foreign. This information waç studied. and from the
information the analysts were able to write reports detailing information such as where
German troops were located and the extent of German troop losses. According to Robin
Winks. author of the most detailed account of the Research & Analysis branch. "nearly everyone outside OSS agreed that R&A was the most important unit in the OSS."'~
Along with using this information to produce their reports. the R&A staff created
'-databases" - using file management systems. file folders and microfiIm - to organize and store the information that they retrieved. The analysts could then retrieve the information as it was needed to respond to the requirements of the governrnent. As Winks notes in Cloak and Gorvn,
R&A could. with a good library at its back and scholars skilled in drawing secrets from a library. get at most of the material the operational branches of OSS, and equally important, of the Amy and Navy, State or Treasury, needed. R&A could, with a well-organized and infinitely expansible retrieval system (which in the 1940s generally meant a card catalog not unlike the kind still encountered in most sensible libraries), reassemble the data it had collected to answer specific questions put to it by Amy. Navy, State, and others. R&A could, with microfilm and new techniques for photocopying and filing, hope to retain inert data across years, rather than playing the fool's garne of 'relevance,' until such time as the data could prove their relevance. R&A controlled the most powerhil weapon in the OSS arsenal: the three-by-five index card." Open Source Information - A True CoIlection Discipline
An arrangement was made with the Geneva-based League of Nations Libraq to commence a microfilming project. The voluminous reports and newspapers which were available in Europe were then microfiimed before being sent to the R&A. In addition to the traditional news sources and government reports. Lewis was also responsible for the
Pictorial Records section. where almost two hundred employees collected what were deemed to be strategic photographs. At one point. a cal1 was put out to Americans to aid the war effort by submitting any photographs from previous travels abroad or any postcards depicting potential areas of interest. It was hoped that these pictures would provide additional information to the limited information available since the start of the war. However. the ovenvhelming flood of pictures and postcards soon ended any thoughts of being able to process the information, and many mail bags were left untouched. In addition to collecting postcards and photographs. extensive lists were created indicating which photographs were held by various news agencies, commercial companies and
Hollywood. This would provide rapid access to photographs and screen images as they were required. With the photographs that were collected, almost three percent were copied. looking forward to the day when there might be a national photographic archive.
Another operation which commenced with the Coordinator of Information and continued on with the Office of Strategic Services was the Interdepartmental Committee for the
Acquisition of Foreign Publications (known as the IDC). Bill Donovan stressed upon
111 Open Source Information - A True Collection Discipline
President Roosevelt the dire problem of obtaining printed matenal from Europe, and so the president agreed in December 1941 to the creation of the IDC. With representatives from the CO[ (subsequentIy replaced by OSS), State, Commerce, Treasury, Labor.
Agriculture, and the Library of Congress, the IDC acquired printed publications as requested by the various American departments. As of 1942. the IDC had obtained approximately 350 publications.
As the war continued in Europe. the difficulty of obtaining publications increased. In addition. with the entry of the United States into the war. it becarne especially dificult to obtain foreign publications as the IDC was now a hostile government agency attempting to procure information from neutral and hostile states. The OSS was able to offer its assistance by creating a network which enabled the foreign publications to continue to arrive in the United States. OSS agents operating in these countries obtained subscriptions to various Iocal newspapers, magazines and joumals. Once the publications arrived, they were forwarded on to the IDC through an etaborate system of passing the material to various agents. securing it ont0 planes and getting it to the United States.
In 1942, the IDC was receiving on a weekly basis 8,000 pages of European newspapers.
By 1943, this had increased to 20,000 pages a week going from Stockholm to
Washington, not coiinting the matenal coming in fiom other posts. In six months alone in
1943. the Publications section in the IDC processed more than 30,000 printed newspapers
112 Open Source Information - A True Collection Discipline and periodicals and over 66,000 issues on microfilm. By 1944, the section found it could not process the overwhelming amount of material, and so much of it was lefi unprocessed." To assist in the processing of this material, Lewis created the Farrnington
Plan. whereby fifty-four major libraries in the United States divided up the world into geographic sectors. and each library was responsible for collecting the material published from their sector. This would ensure a complete collection in the United States, especially in the case of future wars. and would avoid duplication of effort by the libraries and various government departments. It would Save on space. money and resources.
Donovan believed that while the collection of al1 this material was essential. collection must not be an end to itseif. It was crucial that this information be analysed and that reports be prepared for policy makers and other "customers7' of the R&A branch. Part of this required that the university scholars learn to prepare reports without the leisure involved in preparing footnoted papers for journal publication, and to adapt their research methods to the needs of timely war information.
An example of the work produced by the R&A branch was information on the movements of German troops, which was done by collecting obituary notices published by the farnilies of the deceased oficers. Published in local German newspapers (collected in Stockholm and Istanbul), these obituary notices often provided details indicating where troops were located, the number of individuals sewing (counting the number of officers killed) and
113 Open Source Information - A True ColIection Discipline
various other bits of information. From these notices and from compilations tabulating the
information in al1 of the notices. the analysts were able to extrapolate information such as
troop movements. the number of officers and the losses of German troops. The R&A also
prepared reports which accurately predicted that manpower and not food production
would be the critical problem for the Gerrnan war effort, and accurate estimates of the
Gerrnan U-boat and battIe casualties.
Other R&A studies presented detailed information about specific geographic areas. This was used as background information to make preparations before dispatching allied troops to new areas. and also to brief special agents before they left on covert operations. For example. some of the scholars had done extensive work in the Far East before the war.
The information they held on the various areas was used to prepare reports not only on the geography and demographics of the area. but also to present detailed reports on the culture to be found in the areas where the allies were going. This was also invaluable information to agents who were being inserted for covert operations.
The fi na1 statistics on the work completed by the Research & Analysis branch are astounding. By 1945, R&A consisted of 1,500 employees in Washington, DC and 450 employees in various posts outside of the United States. The tally was compiled by Robin
Winks: Open Source Information - A True Collection Discipline
3 million three-by-five cards; 300.000 captioned photographs; 300,000 classified intelligence documents: 1 million maps; 350,000 numbers of foreign serial publications; 50,000 books (excluding the enormous flow from the IDC); thousands of biographical files; thousands upon thousands of uncounted postcards.'3
The legacy of the R&A is immense. The R&A recognized the importance of information which was publicly available, information which could be had by those who knew where to
look. They used their skiIis as researchers - without the aid of modern day technology, commercial online databases or the Intemet - to Iocate vast quantities of information on a wide array of topics. They were able to prepare detailed studies and reports, as well as extrapolating previously unknown facts and figures from the data they acquired. As Winks noted.
The highly trained scholars and analysts of R&A were the first to appreciate the mass of valuable information which could be systematically extracted from ordinary academic books, journals, newspapers, magazines, and from the files of Amencan companies on their overseas operations."l
These analysts were faced with an overwhelming flood of information and the difficulty of deterrnining how to access the information that was available. They learned the importance of compiling a database system that was searchable, so that information could be located quickly. Lessons can be learned from their problems of trying to accumulate vast amounts of information in one place, and from their realization that knowing where the information Open Source Information - A Tme Collection Discipline was and how to access it. was perhaps more efficient than trying to accumulate it al1 in one place.
In September 1945, the Office of Strategic Services was abolished by an Executive Order signed by President Truman. The analytical function of OSS went to the State Department while the operational function went to the War Department. The State Department incorporated their existing analytical section with the new one coming in from the OSS, to create the Interim Research and Intelligence Service. Most of the scholars from the OSS
R&A branch retumed to the universities.
Cold War
Before the close of the Second World War, a heated debate arose in attempts to decide what to do after the war with an independent intelligence service. examining whether one was still required. or if intelligence should be moved back into the military. The debate took place in a number of forums. examining the possible scenarios.
After various interim solutions, the Nationul Seczrrity ACCcreated in 1947 the Central
Intelligence Agency. The CIA's main hnctions were to advise the National Security
Council (MC) regarding the intelligence activities of various US governrnent departments in matters of national security, to make recommendations to the NSC for the Open Source Information - A True Collection Discipiine
CO-ordinationof these intelligence activities. to correlate and evaluate intelligence relating to national security.
During the middle of the twentieth century. in the United States as elsewhere, the nature of intelligence collection undenvent a change. The Cold War built many walls. and many countries became closed and secretive. showing a reticence to release any information, not only about their government but general information about their country. The result was a dearth of publicly available infonnation on a great number of topics and geographical areas. What information was released was often propaganda, broadcast with the intent to deceive.
The closure of borders and the restriction of access to accurate and reliable infonnation about a country resulted in a greater reliance on information obtained through clandestine operations. such as HUMiNT, and various electronic intelligence such as SIGNT and
COMINT. The use of open source information was neglected, resulting in intelligence services structured around the collection and analysis of classified information obtained through covert means and of intelligence analysts who saw little or no value in acquiring and using any unclassified information obtained from open sources. Open Source Information - A True Collection Discipline
Post CoId War
When the Berlin Wall fell in November 1989, the CoId War ended, and the Soviet Union
collapsed. throwing into confusion intelligence services in the western worId as their main
foe - Soviet Cornmunism, disappeared. In addition. the 1980s witnessed a number of
embarrassing espionage cases in the United States, such as the Aldrich Ames case, shaking
the public trust in the intelligence services and raising grave concerns about their activities.
In the United States, this resulted in a number of commissions, reports and studies. both
by the Govemment and the private sector, examining if the United States still required an
intelligence capability, and if so, in what capacity. These reviews examined what the CIA
did, how it did it. and the functionality of the United States intelligence community as a
whole. The studies recommended a continuation of an American intelligence capability,
but with various modifications. A number of these studies exarnined the issue of open
source information, its use or Iack of use by intelligence services and how it could be used
to the benefit of modem day intelligence services.
Preparingfor the 21st Century
In October 1994, the American Congress chartered a bipartisan commission to review the eficacity and appropriateness of the United States intelligence community, and to make
II8 Open Source Information - A True CoIlection Discipline recomrnendations based upon their findings." The Commission of 17 individuals commenced its meetings 1 March 1995. The first Chaiman, former secretary ofdefense
Les Aspin, died suddenly in May 1995.'6and was subsequently replaced by Harold Brown.
The Commission spent one year receiving depositions frorn 84 witnesses. interviewing over 200 individuals. reviewing written material. and visiting foreign countries. One year afier commencing, the report - known as the Aspin Commission. the Brown Commission or the AsphBrown Commission. and by the fonnal title of Preparing for the 2Zst
Century: An Appruisal of US. Intelligence - was presented on 1 March 1996. The main recommendations of the Commission were:
1. Improve integration of intelligence into the policy making community; 2. Pull al1 US intelligence agencies together toward cornmon objectives; 3. Create greater efticiency."
The Commission felt strongly that the United States should maintain its intelligence capabilities. The government needed information in order to formulate policy, avoid potential incidents and respond to ones that might occur, and to make decisions relative to its defence forces. This might be a costly endeavour. but one which was crucial to the needs of the government.
Under "Budget Structure and Process," the Commission indicated that similar kinds of intelligence activities should be created under separate 'discipline' managers, such as Open Source Information - A Tme Collection Discipline having al1 SIGiNT activity grouped under the Director of the National Secunty Agency.
They further indicated that "a uniforrn, community-wide resource data base to serve as the principal information tool for resource management across the Intelligence Community" should be established.'"
In the section "Improving Intelligence Analysis." the Commission examined not only intelligence analysis but the collection of open source information. The capabilities of the analysts were recognized but it was felt they should be "consistently and extensively developed." and that more use should be made of subject specialists who were outside the intelligence community. In addition, the Commission found that "the intelligence analysis consistently adds value to that which is available from public sources. improving the quality of such analysis" and went on to recommend that "A greater effort should also be made to harness the vast universe of information now available from open ~ources.'''~
The Commission raised several very important questions with regard to open source information and examined many open source information issues. In the intelligence product, the Commission questioned why, if the information was available in open sources already, it would be recreated by an intelligence analyst, or could the analyst provide the information without adding anything? The Commission examined specific areas such as economic intelligence, recognizing that approximately 95% of information and analysis on economic topics was already available in the public domain, as well as in sources to which
120 Open Source Information - A Tme Collection Discipline policy makers had ready access. In a condemnatory indictment, the Commission noted that
"intelligence lags behind in terms of assimilating open source information into the analytical process, and it continues to stniggle with how to avail itself of expertise in the private sector.""
In an attempt to compare information reported in public sources with that provided by the intelligence community. and to ascertain what value was added by intelligence. the
Commission conducted in August 1995 what is known as the Burundi Experimenr. The topic of Burundi was given to one tearn of pnvate sector researchers who were to use only open source information, and a second team of intelligence service analysts who were to use classified information. A winner was not declared, but the exercise did show that both open source and classified information had their strengths and weaknesses. While the timeliness and extent of information available publicly was noted, it was found that the analysis performed by the intelligence community provided unique information and added value." The Commission might have seen this as a validation of intelligence analysis as compared to open source information on its own. However, another conclusion might be that the exercise showed the potential for gathering information from both open and classified sources on one topic. The next step would have been to combine this information. and analyse it into one al1 source product to provide a comprehensive, timely and focussed intelligence product. The Commission did indicate that: Open Source Information - A Tnie Collection Discipline
While the use of secret information distinguishes finished intelligence from other analysis, no analyst can base his or her conclusions solely on secret information without considering what is on the public record. Indeed, analysts must have command of al1 relevant information about their subjects. not simply command of secret information.''
On the topic of subject specialists outside of the intelligence comrnunity. the Commission believed that the intelligence cornmunity needed to make a greater use of outside expertise. The Commission noted that the lack of consultation with outside individuals was due to a "lack of financial resources and onerous secunty req~irements".'~It was recommended that the community facilitate this exchange of information so that the intelligence community could benefit from the expertise of outside subject specialists.
The Commission devoted an entire section to "Making Better Use of Open Sources." in it, the members indicated they were aware of the increasing amount of open source information. and the resulting problem of being able to ascertain availability of this information. It was noted that in 1992. a Community Open Source Program Office
(COSPO) was created. with the mandate of CO-ordinatingthe collection, processing and dissemination of open information to the US intelligence community. In addition, it was observed that there were two computer networks that had been established in the US intelligence community providing access to unclassified databases, but in spite of this analysts still had only a limited access to open information. Open Source Information - A Tme ColIection Discipline
In their closing comments on the use of open source information, the Commission recognized the increasing growth of open source information, the importance of it to the intelligence process and the necessity of those in the intelligence community knowing what information was publicly available. They confirmed the value of knowing what was available in open source so as to better focus those resources required for the collection of secrets:
With more and more information becoming available by electronic means, its use in intelligence analysis can only grow. Indeed, knowing what is publicly available enables producers and collectors of intelligence to better focus their efforts on that which is not. So crucial is this determination to the overall intelligence process that the Commission finds it surprising that more emphasis has not been given this aspect of the Intelligence Community's operations."
However. the Commission's closing sentence [above] was a stinging rebuke to the intelligence community. noting the Commission's surprise that the intelligence community was not doing more to ascertain what was available in open sources, and to make more use of open source information. This would imply that the efforts implemented up to that point, such as the creation of COSPO and the various interna1 unclassified databases were deemed insufficient. However. beyond recommending increased use of open source information, no other suggestions were made as to how this increase might corne about. Open Source Information - A True Collection Discipline
In From the Cold
The Twentieth Century Fund. now known as The Century Foundation. was established in
19 19 to sponsor and supervise research on economic, social and political issues.
Individuals with "a strong interest or background" are selected to research on the topic at hand. and to produce a paper or a In the wake of the collapse of the Soviet Union, the Twentieth Century Fund created a task force to examine the perception that the intelligence community in the United States was without clarity as to its goals and priorities. Published in 1996, the task force report, entitled In From the Cold: The
Twentieth Centztry Fund Task Force on the Future of US Intelligence, indicated that
"other recent studies posed questions too narrowly.'""he conclusion of the Twentieth
Centuy Fund task force was that "the intelligence community is not firlfilling its mission."" The report detailed how the information being provided by the intelligence community was not what was required, was not timely, was sometimes without context or insight. and was perhaps not even being communicated effectively.
In From the Cold had three sections with three different authors, examining intelligence in the post Cold War era, intelligence since the Cold War's end, and intelligence vis-à-vis world economy. Author Allan E. Goodman exarnined how the current US intelligence community needed to examine if it should "devote a major part of its manpower and technology to acquiring and handling open sources and whether such open sources cm
1 24 Open Source Information - A True Collection Discipline make a genuine difference to classifîed analyses."" He added that this could mean:
the value the intelligence community adds to the govemment's decisionmaking process could come fiom ... collecting, organizing, summarizing, and evaluating the sheer volume of public information that already exists and is being created at a staggenng rate.'9
This report recognized the value of open source information as well as the role of an intelligence analyst. The anal yst had knowledge of the requirements of the intelligence product consumers. and could take the open source information and to add value to it through filtering and screening this inforrnation into something that suited the requirements of the intelligence community.
The Twentieth Century Fund task force further noted that "in the information age, when masses of data are openly available, collecting more should be less of a priority than setecting which information to rely on and making sense of what is already known or kn~wable."'~Their focus was not the requirement to access al1 open information, but the value of having it filtered and pre-selected before being given to the decision makers. To facilitate this, the task force recommended an increase in the number of analysts in the intelligence community. and that there should be more analysts with supenor (ie improved) analytical skills. The Twentieth Century Fund task force also recommended the improvernent of links with academic and private-sector analysts. Open Source Information - A True Collection Discipline
The Future of US Intelligence
Created in 1992. the Working Group on Intelligence Refonn was a project of the National
Strategy Information Center's Consortium for the Study of Intelligence. A forum in which current and former senior intelligence officials could exchange ideas, the Working Group on Intelligence Reform was intended to encourage debate on topics of intelligence reform.
From these discussions. Abram Shulsky and Gary Schmitt wrote The Future of US
Intelligence to contribute to the intelligence reform debate and to serve as a focus for
Future debates.
In a chapter entitled "Intelligence and the -Information Age.'" Shulsky and Schmitt examined the information that was required by govements in the past, and how that
information had been obtained. It was recognized that the current situation had changed as the information required by governrnents now was broader in its scope, covering more topics and more geographical areas, and that there was more information available. As the authors noted.
Broadly stated, the defining problem in providing govemment with national security information is no longer its paucity as it was during the Cold War. Today, and in the future. the issue will be how govement can efflciently and effectively draw on the new and expanding resources of information outside itself and, in turn, determine which categories of information intelligence should be specifical ly employed to collect, process, and di~seminate.~' Open Source Information - A True CoIlection Discipline
Contrary to certain views being reported at the tirne of this report, the authors did not think that the intelIigence community needed to collect al1 the available information that might be required by the government. compile it into an intemal database and use it as required. As they noted. "the notion that one govenunent agency should strive to become the sole repository of nationai security information for the government runs counter to the logic of the 'information age'."" Today. this issue remains unresolved in the US intelligence community.
For Shulsky and Schmitt. the issue was not ifopen source information should be collected or ifopen source information should be used - they took that as a given - but the issue was who should be collecting open source information. They recognized the advantage of having the intelligence community CO 1lect open source, as this would "facilitate the fusion of this [open] information with secret information'?'' which would result in an al1 source intelligence product. The concern was that the necessary language skills and searching expertise required to locate al1 available information were not avaiIable within the intelligence community. and as such, they recommended that the collection should be done by those outside the intelligence community who had the necessary skills and expertise.
Another solution explored in The Furure of US InreZZigence was the use of information specialists to collect open source information. The new world of information is not as organized and as easy to navigate as might be hoped, and as is often noted, "a twelve-
127 Open Source Information - A True CoIlection Discipline year-old with a modem can easily 'surf the net,' locating a specific bit of information and filtering out the chaff from the wheat can be a time-consuming task." Obstacles that present themselves in relation to the Information Age were noted, including how to locate where information is. how to evaluate the reliabiIity of the sources. and how to fuse this information with information from covert sources. The authors asked whether or not an information specialist might be the person to locate, evaluate and fuse this information.
According to the authors, the coilecting of open source information was currently being done in various forms by policy makers, their staff and intelligence analysts. However, the policy makers were too busy to do it. the staff were concentrating on policy formation rather than on collection. and moreover lacked the specialized skiIls and access to fuse open and covert information. The analysts had the necessary skills and access to fuse open and covert information. and were trained in evaluating sources, but were not as aware of the requirements of the policy makers and might not be as willing to access sources of information outside the covert channels.
Shulsky and Schmitt concluded that there was a great deal of information that was becoming available in open sources, and that much more was to corne. They indicated that there were drawbacks to having open source information collected by policy makers, staff or analysts, and that perhaps the solution was to engage the skills of information specialists "to help sort through the welter of sources."" The use of information specidists
128 Open Source [nformation - A Tme Collection Discipline within the intelligence community would also address the concem that Shulsky and
Schmitt expressed that those with the skills required to locate this information were not currently in the intelligence community .
In addition. Shulsky and Schmitt recommended that more attention be paid to the information available in open sources and that an infrastructure to support this should be implemented. While informal collection of information from open sources was ongoing. this was a resource upon which a greater importance should be placed. As they noted, "Al1 of this suggests that more focused [sic] attention should be paid to the handling of nonintelligence [sic] information channels that have always been important but which have operated in an informal and unexamined rna~er.'''~This was tantmount to recommending the creation of a true open source collection discipline.
Community Open Source Program
Subsequent to the Second World War 11 Research and Analysis branch in the Office of
Strategic Services. the next major development in the use of open source information by the American intelligence community was the creation of an open source off~ce.In 1992. subsequent to the Open Source Task Force,36Paul Wallner was named Open Source
Coordinator. A position created by the US intelligence comrnunity, the Coordinator was to create a strategic plan regarding the use of open source information within the
129 Open Source Information - A TN~Collection Discipline
American intelligence community.
According to the CIA Insider S Diclionary, the Open Source Coordinator was given three
tasks to accomplish:
(1 ) EstabIish a catalog of open-source hotdings of the entire Community; (2) Establish a comprehensive system for requirements to serve as a guide for the acquisition of open-source materials for the Cornmunity; (3) Over the long term. establish the capacity to share such information within the Community on a broad scale. The Coordinator is also responsible for ensuring that other forms of collection are not used when the information is available from open sources through active interaction with other collection disciplines.''
Thus the role of the Open Source Coordinator was to ascertain what open source
information already sxisted within the intelligence community. how to acquire more. and
how to share these resources. Perhaps the most challenging task was to ensure that open
source was used when it was available. rather than information collected by covert or
technical means.
On 1 March 1994. the position of Open Source Coordinator was superceded by the creation of the Community Open Source Program Office (COSPO). The stated role of the
formalized COSPO was '-to make open source more useable, more useful, and more widely used."" This would be accomplished by CO-ordinatingaccess to open sources for the Amencan intelligence community to ensure prioritization of investments, to eliminate
130 Open Source Information - A Tme Collection Discipline unnecessary duplication. to ease legal and technical access to the information and to pursue partnerships and more cost-effective access to information sources and providers.
This mode1 resembles the numerous library consortia agreements that currently exist for many of the same reason.
In February 1995. the Cornrnuniv Open Source Strategic Plan was released. detailing the mission statement of COSPO. as well as the goals and objectives of COSPO for the next seven years. Recognizing the increasing availability of open source information, COSPO noted that one of the main obstacles was that "this information has also reached a lirnit where a user or customer has difficulty finding it, evaluating its validity. or readily integrating it into classified all-source products without automated systems
The proposed plan of action by COSPO was to introduce activities and initiatives to integrate the use of open source into the intelligence community. COSPO proposed the development of an integrated architecture to allow for the dissemination, distribution and management of the flow of open source. Part of this flowed from the mission statement of
COSPO, which was to eventually enable users to access open source from their offices, to enable them to communicate over these systems, and to provide access to experts and open source systems from cornpanies and academic institutes. The intent was ?O improve in a cost-effective manner. the use, usefulness and usability of open source inf~rmation.'~'
To achieve these objectives, COSPO had ten listed goals. While a number of these goals focus on the provision of a secure, integrated, intemal computer systern, others examine
131 Open Source Information - A True Collection Discipline the need to provide an infrastructure for collecting and maintaining open source information. as well as a plan to manage open source information.
Goal four provides for the creation of an infrastructure to "maintain a robust worldwide collection capability" while expanding the use of "non-Community agents for accessing and collecting information.?'" Goal six would see the development of technical systerns, irnproving the means to store and retrieve the information as well as systems to manage the flow of information. Goal nine is to provide management across the intelligence community of a11 open source information activities, whiIe goal ten is to preserve and expand the open source resource base. This final goal is to have COSPO maintain the infiastructure of personnel, structures and organizations to "sustain the necessary expansion of open source activities.'"'
The goal to create an infrastructure to enable the collection of open source is necessary as a result of the recognition of the importance of open source information. However, the goal to bring this information into an internal system is questionable. The assumption made by COSPO and the US intelligence cornmunity appeared to be that the open source information had to be collected, brought into an internal system, and from there made accessible to al1 within the US intelligence community. However, this would engender an infrastructure that had to be maintained and updated. The bombing of the Chinese
Embassy in the former Yugoslavia is an exarnple of the tragic results of not maintaining
132 Open Source Information - A True Collection Discipline these types of systems.
In 1998. COSPO presented another strategic plan, this tirne for the period 1998-3002. The mission statement was still "make open sources more useful, more useable. and more used." As before, COSPO's role was to ascertain what open source information was being collected by whom in the US intelligence community so as to reduce dupIication. The open source prograrn was to provide direct access to open sources directly to users' desktops either over the Intemet or through commercial online providers, and in direct relation to this. to negotiate cost effective deais with the information providers. The prograrn was to implement tools that would enable foreign-language browsing, machine- assisted translations, and data-mining functionality.
COSPO was to "aggressively pursue acquisition of additional open sources that can provide a Iow-risk, low-cost alternative to clandestine and technical collection, thus freeing those collection resources.'"' This included ascertaining where gaps in open source collection were, to educate users as to the potentiai of open sources and to "tap more effectively non-US Govemment expertise through conferences and ~erninars.'~~This is of interest in that it specifies why open source was to be collected: to be an efficient means of collecting information which would enable clandestine and technicaI collection to focus on what they really needed to collect. This goal seemed to be suggesting, without stating it, that open source itself needed to become a collection resource comparable to cIandestine
133 Open Source Information - A True Collection Discipline
and technical collection.
%y 1998. COSPO was still advocating the management of an intemal system. This had
already been created. with the Open Source Information System (OSIS) and InteIink-U
(Intelink Unclassified). two new computer networks that provided CIA analysts access to
over 1 200 open source pubtications (such as Jane's Electronic Library. FB IS and Oxford
Analytica Regional Daily report^"^)^ and a means of communicating and sharing open
source information within the Amencan intelligence cornm~nity."~While COSPO indicated
in the Slraregk Pfun 1998-2002 that the preference was to access public information as
economically as possible, there was still an indication that the focus was to acquire the
information and maintain it on interna1 databases. A stated goal was to develop a "World
Basic Information Library" which would be a database containing information on each country. such as geographic. political, military and demographic information.'"
In discussing the frailties of the various open source initiatives in the US governrnent, and the vulnerabilities of these programs to being reduced or even eliminated, COSPO conciuded that in the short term the Open Source Steering Committee should be a point of contact, where the various US intelligence programs could present potential reductions and examine alternative courses of action. However, the ideal would appear to be the creation of a separate collection program which would then receive appropriate resources and weighting. This would appear to be a recommendation for the creation of a separate
134 Open Source Information - A Tme Collection Discipline collection discipline for the collection of open source information.
A more desirable state of affairs, of course, would be to create a tmly separate prograrn. and stock it with the resources currently distributed across other extant prograrns. The size of the Open Source Prograrn, while always minuscule in cornparison to other collection prograrns, must be decided upon by the Community as a whole. based on its contribution to the overall intelligence process, rather than on its abiIity to compete locally with priorities of individual departments and ogencies."
The Community Open Source Prograrn presents itself as the means to organize the collection of open source information, to promote its use within the intelligence community, and to ensure the ease of use of open source information through the implementation of an infrastructure. While some of COSPO's promotional documentation on the role of open source information noted that open source "undergirds each of the other intelligence collection di~ci~lines,"~~they also presented the rationale for creating a collection discipline - with its own infrastructure and resources - dedicated to the collection of open sources.
The promotion of open source use by COSPO has been an important contribution to the issue of open source use by intelligence services. As indicated by the Amencan
Community Open Source Program,
Enlightened use of open sources allows us to do the job better and to resex-ve more expensive, higher risk, clandestine collection options for otherwise unobtainable Open Source Information - A Tme Collection Discipline
information on which the security of our nation and the safety of our forces may turn?'
Current Open Source Initiatives
Central Intelligence Agency - Directorate of Intelligence
Currently. the mission of the Central Intelligence Agency (CIA) is:
to support the President, the National Secunty Council, and al1 officiais who make and execute US national security policy by providing accurate, comprehensive and timely foreign intelligence on national security topics, and by conducting counterintelligence activities, special activities. and other functions related to foreign intelligence and national security, as directed by the ~resident."
The CIA is the CO-ordinatorof al1 US national intelligence, working with the Arnerican intelligence community to CO-ordinateal1 intelligence which has an impact on the United
States as a whole. The CIA itself has four Directorates: Administration (DA), Operations
(DO), Science and Technology (DS&T). and Intelligence (DI). The Directorate of
Operations undertakes covert operations and ensures the collection of information through human sources. The Directorate of Science and Technology is where the various technical collection systems are, such as the Foreign Broadcast Information Service (FBIS), while the Directorate of Intelligence (Di) is where CIA analysts produce al1 source intelligence products. Open Source Information - A True Collection Discipline
The DI products range from current intelligence papers to in-depth studies such as the
National Estimates. on topics including political. military, and economic developments.
The DI produces a wide range of products frorn the well-known (and unclassified) WorZd
Factbook (a compendium of basic intelligence profiles on over 250 countries) and the
Chiefs of Stute and Cabinet Ministers ofForeign Governrnents (a directory of foreign government officials). to daily intelligence reports including the President's DaiZy Brie5 the Econornic Execztrives' InteZZigence Brief; and the Senior Executive InteZZigence Brief:
They also produce The Terrorism Review. The Narcotics Moniror, The ProZljieralion
Digest. The International Arms Trade Report, and brief but highly focused analysis reports such as The Special Intelligence Report. The Intelligence Memorandurn, The intelligence Report.
The Assistant Director of Central Intelligence for Collection (ADCI for Collection) ensures "the most efficient and effective collection of national intelligen~e."~~The ADCI for collection works with the ADCI for Analysis & Production as well as other prograrn managers to look at creating and maintaining a collection process that responds to al1 the collection needs of the entire US intelligence community.
The Di is divided into several different sections. There are the analytical sections, covering various geographic regions, various international issues and support sections. Also, there is the Collection Requirements and Evaluation Staff (CRES) where the information is
137 Open Source Information - A True Collection Discipline acquired. The CRES staff task the various information collectors to collect information for the analysts. These disciplines are listed on the DI Intemet site as "including imagery, signals intelligence, and human intelligence."'' Open source is not listed as one of the disciplines. in addition. CRES "is the Agency focal point for evaluating collection systems and for decisions on future systems and collection-related resource issue^."^' In its mission statement. the DI indicates that one of its capabilities is that it "brings together a diverse, highly trained work force with state-of-the-art technology to analyze intelligence information drawn from clandestine and open sources." Thus, they indicate that open source information is part of their information base, and yet it is not noted as a collection discipline which can be directed to collect information for the analysts.
To produce their intelligence products, the dl source analysts in the DI review al1 types of information. including open sources such as foreign newspapers. US diplomatic reports. as well as information collected through sensitive technical means. According to the CIA's
Faclbook on intelligence. "open source reporting is integral to CIA's analytical capabilities."" The analysts assess the accuracy and relevance of the information to ascertain what will be used to produce their reports. According to the DI, th& analysts prepare timely reports that are objective and that demonstrate the integrity of the analysts' analytic j udgements. In addition, these reports allow follow-up feedback so as to redirect fùture research and analysis. Open Source Information - A True Collection Discipline
In its role as an al1 source provider of intelligence, the DI attempts to ensure successful al1 source collection. This is a team effort, where the analysts and the collectors work together so that the analysts will be aware of the collection capabilities and so that the collectors have a better understanding of the collection requirements. As part of this. the
DI has encouraged CO-operationbetween their analysts and the collectors, including cross- stafing?to gain better understanding.
To improve on their capabilities as al1 source providers. the DI has itemized specitic actions to be taken. such as developing a prioritization list for collection strategies and making collection "an integral and valued part of the DI Tradecraft ethic." This includes continuous training for analysts and expanding the use of technology, as well as an evaluation of the "substantive contribution of collection prograrns and platfor~ns."~~A tradecraft ski11 that the DI deems necessary for their analysts is "strong information handling ability including tapping into open sources and assisting and directing efforts of the colle~tors."~~
A specific goal of the DI for the 2 1" century is to "Revolutionize the business of analysis by taking advantage of advances in information technology."" As such, the DI hopes to become a leading promoter and user of technology. This will include the fundamental objective of "shifiing Our [the DI] emphasis away from private holdings on proprietary systems to widespread availability (within security guidelines) on commercially open
139 Open Source Information - A True Collection Discipline
Within the Directorate of Intelligence. the DI officers translate the analysts' needs into future collection requirements. develop al1 source collection strategies, forecast changes in the collection policies. and plan future collection capabilities. To accomplish this. DI collection analysts develop proficiencies in collection systems, programs. and capabilities, as well as a broad knowledge of the intelligence community requirements. systems and processes.
One of the disciplines under the DI is Information Systems and Services (ISS). This group includes Information Resource (IR) professionals, Analytical Methodology professionals and Information Technology professionals. The IRs have:
expert knowledge of the content of information resources. including the ability to critically evaluate and filter them. They collect, disseminate, and retain classified and unclassified documents; operate all-source libraries; and provide all-source reference services. They also assist in the organization of information, contrïbuting to the growth of corporate knowledge."
To accomplish their work. the IRs "need broad knowledge of: world events, various information sources and media, document policies and procedures and instructional techniques. They typically have strong research, information organization, and database navigational ~kills."~'The capabilities and the knowledge requirements of the IRs are Open Source Information - A True Collection Discipline remarkably similar to the core cornpetencies required by any librarian who works in a specialized library, such as a business, medical or intelligence service library6'
The DI provides a list of the professions that play a key role in assisting their analysts in preparing their intelligence products. The extensive Lst includes '-the support of many other intelligence professionals to prepare and deIiver their analytical products.
Cartographers. graphic artists, statisticians, and computer and technical specialists al1 work together to achieve a common goal." In spite of the emphasis on the evaluation of sources. the knowledge of information systems, and the use of databases, this list of required professionals does not include a librarian or an information specialist.
The message from the DI is arnbiguous. On the one hand, they recognize not only the value of open source in their al! source intelligence product, but the infrastmcture that must be in place to enabIe the collection and evaluation of open source material. However, when discussing the various collection disciplines, open source is not listed. Also. as to who will be colIecting this information and the various professionals required to support the intelligence function, there is no mention of open source specialists. So while the initial recognition for open source is there, it disappears in the details of how things happen.
Given the level of detail for al1 the other areas of the DI, this would appear to be not so much an oversight or an omission, but rather a lack of recognition for the place open source should have within the system itself and the infrastructure required to support the
141 Open Source Information - A True Collection Discipline cotlection of open source information.
ClA -Annual Report 1998
Another area of confusion regarding the current US policy towards open source information is to be found in the 1998 Director of Central Intelligence's (DCI) Annual
Report for the United States InteZligence Community. The report examined the accomplishments of the various programs. including a section entitled "Disciplines."
Cornmencing with "Al1 Source Analysis and Production." the report examined various intelligence disciplines including OSiNT.
However. in another area it was indicated in the report that al1 source anaiysts examine and interpret '*raw data from the intelligence disciplines of IMNT, HUMiNT, SIGlNT,
MASINT as well as the expert commentary of both single source analysts and HUMINT collectors." In addition, an analyst "develops a unique persona1 preference for other valuable data sources. These may inctude industry and academic contacts, allied intelligence services, non-governrnental agencies (NGOs), and counterintelligence datawG
To mention in a report of this nature that the analysts use these various intelligence disciplines, without making mention to open source information, appears to be standard and is consistent with other material that has been reviewed. In a separate paragraph the report continued - with what seems to be aside - that "open source intelligence has
142 Open Source Information - A Tnie Collection Discipline
become an increasing valuable contribution to the al1 source analysis process. The
availability of open source intelligence was facilitated by the Intemet's exponential
growth.'"'
The arnbiguity in the DCI's Annual Reporf is that it mentions open source information but
also seerns to ignore it. In keeping with recent tradition, the report has shown a certain
acceptance of an al1 source intelIigence product which -as an aside - contains open
source information as well. The focus in this tradition is on the various collection
disciplines. with open source mentioned in passing, generally summed up in one sentence
or one paragraph. To this point, the Annrral Report was consistent. However, the
subsequent list of"Accomp1ishments" of the al1 source product program included several
open source accomplishments: the use of outside experts, the imminent arriva1 of Internet
access to analysts at their desktop and expanded language training to access foreign press
and web sites. In addition, further into the document, the report included OSNT in its
review of the various collection disciplines. The accomplishments for OSNT included the
efforts to create a Corporate Knowledge System, the implementation of a Latin Amencan
newspaper monitoring section, the expansion of an international open source prograrn, the
increase of open source reporting and the implementation of a work-sharing Intemet- based system? To further obfuscate the issue, while the extensive glossary defined al1 of the intelligence disciplines that were discussed, OSNT was omitted. Open Source Information - A Tme Collection Discipline
The confusion is that while the report appeared to follow the pattern of acknowledging the existence of open source information, and of noting its contribution but of not really including it in the overall intelligence product system. the report suddenly included OSWT in the listing as an MT with its own accomplishrnents. By doing this. the DCI's Annua/
Report could be said to have elevated OSiNT to an intelligence discipline. However, as the characterization of OSMT as a separate intelligence discipline, on equal footing with
SIGINT. TECHINT. etc., does not appear to be recognized within the Annual Report, and there is no accomplishrnent indicating that OSINT would henceforth be included as one of the primary intelligence disciplines, it aImost appears that this inclusion of open source is an error. a slight of the keyboard, where the importance of open source is noted without really acknowledging its existence. Nevertheless, this report is encouraging in that the DCI has acknowledged the importance of open source to a greater degree than ever before.
JIC Trans and USPACOM
Despite arnbiguity at some levels within the US intelligence community, there are examples of the successful integration of open source information into the intelligence process. EspecialIy noteworthy is the work being undertaken by the Joint Intelligence
Center Transportation Command, known as JIC Trans. Through the use of magazine subscriptions and the Intemet, the staff in the JIC supplement information received Open Source Information - A True ColIection Discipline through traditional intelligence channels, and in some cases obtain new information, when there is no intelligence to be had. According to Colonel J. D. Wilson. manager of the JIC,
"we need much more information than where Our intelligence sources are focussed. So we have to rely on open source inf~rmation.'"~As Colonel Wilson indicated. open source is a necessity. especially in cases where the established intelligence requirements do not cover the area in question. and as such. there is no intelligence to rely on.(or to use). In other exarnples. Colonel Wilson clearly demonstrated cases where open source information provided information that clarified dubious information from intelligence reports, where open source provided new information resulting in changes in operational undertakings, and where open source provided information that was unavailable from intelligence
Another area of advancement in the use of open source information within the intelligence process is with the US Pacific Command (USPACOM) 5-8 where they have created a
Virtual Information Center (VIC). USPACOM found that intelligence reports were not obtaining the information they required, so the VIC was created as an open source centre, to collect open source information, process and disseminate it. Using COSPO's Open
Source Information System (OSIS), the Internet and online databases as primary resources, the VIC also partnered with experts, other groups and colleges, such as the
Australian Defence College. On a regular schedule the VIC answers requests for information, while during a cnsis the VIC answers questions only from the crisis action
145 Open Source Information - A True Collection Discipline tearn. In the long term. it is anticipated that the VIC will become pro-active. anticipating needs in relation to the requirements of the US Pacific Cornrnand. In the future, the intention is to create a Knowledge Center. which will include input from two teams. both the VIC with open source information and the classified intelligence centre19
The USPACOM Virtual Information Center ran a series of experiments to evaluate concepts for managing the acquisition. processing, analysis and presentation of information dunng Humanitarian AssistancelDisaster Relief operations. The first VIC experiment was conducted 20-24 April 1998 at both the Joint C4ISR Battle Center. in
Suffolk. Virginia and US Commander-in-Chief s Pacific Command Political Military
Anchor Desk facility in Camp Smith, Honolulu. The results of that experiment showed that open source material was obtained quickly and was often of more value than classified information.
Recommendations from the VIC review were that an infrastructure should be created for both ongoing and "surge" (sudden increases due to incidents) open source procurement. It was recommended that the VIC "was not a creature to be stood up suddenly. but must be up and running c~nstantly."'~ Open Source Information - A True Collection Discipline
Foreign Broadcast Information System - FBIS
A prominent open source feature of the Arnerican govemment, the Foreign Broadcast
Information Service (FBIS). merits special mention in any discussion on open source information. Created by the Arnerican governrnent in February 194 1, FBIS was originally known as the Foreign Broadcast Monitoring Service (FBMS). The role of FBMS was to monitor German and Japanese short-wave radio transmissions. and to record, translate, transcribe and analyse these radio prograrns for distribution to the US government. WhiIe a great deal of the work done was a transliteration of these broadcasts, some broadcasts were analysed to ascertain changes in Japanese policies and intentions.
Originally funded by the Federal Communications Commission (FCC), the FBMS operated out of an office in Washington, DC. The service quickly expanded as more listening outposts were created al1 over the United States. The monitoring also moved to include other published foreign media. On 10 December 1941, an agreement was made by which FBMS would share its open source information with the British Broadcasting
Corporation - an arrangement which continues to this day. In July 1942, FBMS was renamed to the Foreign Broadcast Intelligence Service. In January 1946, FBIS was transferred from the FCC to the War Department, Military Intelligence Division, and then in July of that year it was transferred to the newly created Central Intelligence Group. A subsequent reorganization on 1 May 1967 saw the advent of the name Foreign Broadcast
147 Open Source Information - A Tme Coilection Discipline
Information Service.
In 1974, FBIS went on sale to the public through the US govemment's National Technical
Information Service (NTIS). Searches of Arnerican university library catalogues show that many of them have extensive holdings of the FBIS Daiiy Reports dating back to this period. Today. FBIS is still available to the public through the Intemet, although instead of FBIS. the public edition is called "World News C~nnection."~'
Today. FBIS has adapted to the changes of the Cold War, the Internet and new intelligence priorïties. It has changed its product from print. to a high tech all-electronic product. whereby information is disseminated within minutes of an original broadcast.
News and information that is monitored includes not only pnnt sources, but radio and television broadcasts and Intemet sites, in English and many other languages. Non-English articles are quickly translated and disseminated. FBIS is still the prirnary coilector of foreign open source information for the United States govermnent. FBIS scans over 3.000 news sources in nearly 60 Ianguages. coming from media sources from countries al1 over the globe (outside of the United States). The English-language translations are made available within 48-72 hours, with updates to the information being available every business daY.'' Open Source Information - A Tme Collection Discipline
Conclusion
During the Second World War. the Research and Analysis branch of the Office of
Strategic Services provided solid examples of how open source information could be useful. and indeed at times how it could provide information that was unavailable elsewhere. Using trained analysts, the disparate pieces of open source information were pieced together.
Then, the use of open source information fell into disuse during the Cold War. The lack of available open source information, as well as a gradua1 reliance on covert collection techniques. lefi open source information to be forgotten. The creation of the Community
Open Source Program brought about renewed interest in attempting to integrate and facilitate the use of open source into the intelligence community. However, it was the explosion of information over the Internet, the opening up of areas once deemed secret
(such as the collapse of the Soviet Union), and the need to find more cost effective means of efficiently using available resources that have really pushed the use of open source information back into the forefront.
While the journey is not yet compieted, the path has become somewhat clearer, and there is encouragement that perhaps this time open source will be recognized for the important contribution it can bt-ing to the intelligence process. The initiatives by JIC Trans and
149 Open Source Information - A True Collection Discipline
USPACOM provide a glimmer of hope that the use of open source information will become more widespread.
Endnotes
1. For a history of Bill Donovan and the CIA, see John Ranelagh. The Agency: The Rise and Decline of the CIA From WiZù Bill Donovan to William Casey. (New York: Simon and Schuster. 1986).
2. United States. President. --Designating A Coordinator of Information." (Washington, DC: The White House. 1 1 July 194 1 ). Cited in Thomas F. Troy. Donovan and the CIA: A History of the Establishment of the Central Intelligence Agency. (Washington, DC: Aletheia Books. 198 1 ) p. 423.
3. John Ranelagh, CIA: A History, (London: BBC Books, 1992) p. 26.
4. Jeffrey T. Richelson, A Century of Spies: Intelligence in the Twentieth Century, (New York: Oxford University Press, 1995) p. 206.
5. Robin W. Winks, Cloak and Gown: Scholars in the Secret War, (New York: William Morrow, 1987) p. 100. Winks was also a Yale University historian who served with the OSS and later the CIA.
6. Idem.
7. Harold Brown and Warren Rudman. Preparing for the .? 1st Century: An Appraisal of US Intelligence, Report of the Commission on the Roles and Capabilities of the United States Intelligence Community, (Washington, DC: US GPO, 1996) p. A-5.
8. Ranelagh, UA. p. 28.
Y. Winks. Cloak and Gown, p. 70. "SI was reluctant to give its information to R&A, even though both were units of the OSS, which meant that the data SI collected could not be pumped into the larger picture."
10. Ibid.. p. 6 I . Open Source Information - A True Collection Discipline
1 1. Ibid.. p. 63.
12. Ibid.. see pp. 1 02-5.
13. Ibid.. p. 1 1 1.
14. John Ranelagh. CIA, p. 29.
15. Intelligence Airrhorizarion Act. Fiscal Year 1995 (P.L. 103-359) created the Commission on the Roles and Capabilities of the United States Intelligence Comrnunity.
16. Richard Pearson. "Ex-Pentagon Chief Aspin Dies Afier Stroke at Age 56." Washington Post (22 May 1995).
17. Brown and Rudman. Preparing for the 21" Century. p. xii.
18. Ibid.. p. xxi.
19. Idem.
20. Ibid.. p. 83.
21. Ibid.. p. 86. See also Robert Steele, "Virtual Intelligence: Conflict Avoidance and Resolution Through Information Pea~ekeeping,~Journal of Conflict Studies? Vol. XIX, No. 1 (Spring 1999), p. 95 for Steele's report on his participation in the exercise. See also Vernon Loeb, 3pying Intelligence Data Can Be an Open-book Test: Firm Finds a Market for Publicly Available Information." Washington Post (22 March 1999) for another account of the Burundi exercise.
22. Brown and Rudman. Preparing for the 21"' Cenfury,p. 88.
23. Idem.
24. Ibid., p. 89.
25. The Century Foundation, Oiir Mission, http://www.tcf.org downloaded 2000.03 .O 1.
26. Allan E. Goodman. Gregory Treverton and Philip Zelikow, In From the Cold: The Report of the Twentieth Century Fund Tosk Force on the Furure of US Intelligence (New York: The Twentieth Century Fund Press, 1996) p. 4.
27. Idem. Open Source Information - A True CoIlection Discipline
28. Ibid.. p. 4 1.
29. Idem.
30. Ibid. p. 7.
3 1. Abram N. Shulsky and Gary J. Schmitt, The Future of US Intelligence: Report Prepured for ihe Working Group on lnrelligence Reforrn (Washington, DC: Consortium for the Study of Intelligence. 1996) p. 13.
32. Idem.
34. Ibid.. p. 1S.
35. Ibid.. p. 14.
36. The Open Source Task Force was one of eleven task forces that Congress required the then newly confimed Director of Central Intelligence. Robert M. Gates, to establish.
37. Leo D. Carl, The CIA Insider's Dicrionary of US and Foreign Intelligence, Counrerinrelligence und Tradecrafi. (Washington. DC: NIBC Press. 1996) p. 432.
38. Idem.
3 9. United States. COSPO. Cornmunis. Open Source Strategic Plan (Washington. DC : COSPO. February 1995) p. 1.
40. Ibid.. p. 3.
41. Ibid.. p. Il.
42. Ibid.. p. 17.
43. United States, COS PO, Intelligence Cornmuni4 Open Source Strategic Plan 1998- 2002, (Washington, DC: COSPO, 1998) p. 9.
44. Idem.
45. Open Source Solutions, Open Source Intelligence Hundbook, (Washington, DC: OSS. 1996). Open Source Information - A True Collection Discipline
46. Broum and Rudrnan, Preparing for the 21"' Century, p. 88 and Paul Wallner, Personal Interview. (Ottawa, 30 July 1999).
47. United States. COSPO, Strafegic Plan 1998-2002. pp. 13- 14.
48. Ibid.. p. 19.
49. Ibid., p. 2 1.
50. Ibid.. iii.
5 1. United States. Central Intelligence Agency. Central Intelligence Agency. http://www.cia.gov/ic/cia.html downloaded 99.07.14.
52. United States. Central Intelligence Agency, Director of Central Intelligence Annual Report For the United States Intelligence Community. (Washington. DC: CIA, May 1999). http://www.cia.gov/cia/publications/Q98intellrpt/intro.hmtl downloaded 1999.09.09.
53. United States. Central Intelligence Agency. Directorate of Intelligence, "Collection Requirements and Evaluation Staff," http://www.cia.gov/cia/di downloaded 1999.07.08.
54. Idem.
55. United States. Central Intelligence Agency, Factbook on Intelligence, Fiftieth Anniversary Edition. (Washington. DC: CIA. 1997) p. 13.
56. United States, Central Intelligence Agency, Directorate of Intelligence, "Primary Driver of CoIIection," http://www.cia.gov/cia/di downloaded 1999.07.08.
57. United States, Central Intelligence Agency, Directorate of Intelligence, &'Major Provider of All-Source Analysis." http://www.cia.gov/cia/di downloaded 2000.03.05.
58. United States. Central Intelligence Agency. Directorate of Intelligence, "Collection Requirements and Evaluation Staff."
59. idem.
60. Idem.
61. Idem. Open Source Information - A Tme Collection Discipline
62. For more information on core cornpetencies for special librarians, see the Special Libraries Association Internet site at http://www.sla.org.
63. United States, Central Intelligence Agency, Directorate of Intelligence. "Collection Requirements and Evaluation Staff."
64. United States. Central Intelligence Agency. Direcror of Cenrral Inrelligence Annual Report. (1999) p. 10.
65. Idem.
66. Ibid.. p. 14.
67. United States. Transportation Command, Joint InteIligence Center. Colonel J. D. Wilson, "Open Source." Open Source Solutions Conference. (Washington. DC, 24 May 1999).
68. See Chapter 1 - Value of Open Source Information.
69. Sean Connors. "USPACOM 5-8 Virtual Information Center," Open Source Solutions Conference (Washington. DC. May 1999). Notes from the presentation.
70. Sean Connors. "Virtual Information Center (Vic) Concept Refinement Workshop: Exploring Other Enablers." OSS Pacific Conference, (February 1999).
7 1. World News Connection: http://wnc.fedworId.gov downloaded 99.10.25. Billed as "A foreign news service from the US Govement."
72. J. Niles Riddle, "FBIS Requirements and Capabilities," Open Source Solutions Conference (Tyson's Corner, Virginia, 1-3 December 1992). At the time of this presentation. Riddle was the Deputy Director of FBIS. CHAPTER 4 - CANADA & OPEN SOURCE INFORMATION
The Canadian Security Intelligence Service (CSIS). an agency of the Solicitor General of
Canada. has the primary responsibility for national security within Canada. CSIS is a proponent of the use of open source information. and has followed the advice of many reports and recommendations to ensure its use in the intelligence process. The main report which initiated recommendations on the need for a Canadian intelligence service to use open source information was the McDonald Commission report which was presented in the early 1980s. Followed by numerous Security Intelligence Review Committee reports examining the use of open source information, and several special reports, the current documentation on CSIS dernonstrates its active use of open source information. This study examines the use of open source information by the Canadian Security Intelligence
Service. as documented in various public reports. studies and publications.
CSIS - Creation and Mandate
On 28 June 1984, Royal Assent was given to Bill C-9, passing into law the Canadian
Security Intelligence Service Act (C'SIS Act). The CSIS Act came into force on 16 July
1984. and with it the creation of the Canadian Security Intelligence service.' The
Parliament of Canada detailed in the CSIS Act a clear mandate for the Canadian Security
Intelligence Service (CSIS) to act as a defensive domestic service that would investigate Open Source Information - A True Collection Discipline threats to Canada's national security.
The pnmary role of CSIS. detailed in section 12 of the CSlS Acr, is to collect. analyse and retain information. Specifically. this information shall pertain to activities that threaten
Canadian security. In addition. CSIS is to report this information to the Govenunent of
Canada and advise the Govemment accordingly:
The Service shall collect. by investigation or othenvise. to the extent that it is strictly necessary. and analyse and retain information and intelligence respecting activities that may on reasonable grounds be suspected of constituting threats to the security of Canada. and in relation thereto. shall report to and advise the Govenunent of Canada.'
In addition. CSIS may provide security assessments to other Canadian Government departments and advise Ministers on matters of national ~ecurity.~
The McDonald Commission
Before CSIS was created, there were numerous inquiries which exarnined various aspects of how the security services of the day operated, and how it was believed a security service in Canada should operate. The inquiry which had the greatest impact on foming the current Canadian intelligence service was The Commission of lnqztiry Concerning
Certain Acfivities of the Royal Canadian Mounted Police, known as the McDonald
Commission after its chairman, Justice David C. McDonald. Open Source Information - A Tme Collection Discipline
The i970s had been a tumultuous decade, with what appeared to be an epidemic of international terrorist activity. felt even in Canada with the temorist attacks by the Front pour la Libération du Québec (FLQ). The invoking of the War Measures Aci, as well as certain RCMP activities which came to light. outraged the public. In response to revelations about questionable activities, and accusations of misdeeds by the Royal
Canadian Mounted Police Security Service. the federal govemment created the McDonald
Commission by Order-in-Council P. C. 1977- 19 1 1 on 6 July 1977. The official role of the
Commission was --to inquire into and report upon certain activities of the Royal Canadian
Mounted Police."'
Several reports were presented by the Commission between 1979 and 1981. with detailed findings on past activities. and recomrnendations for a future course of action. The
Govemment of Canada accepted the main recommendation of the Commission, which was to separate the police-oriented RCMP and the Canadian security and intelligence hnction.
The earlier 1969 Royal Commission on Security (known as the Mackenzie Commission), had recommended as well the creation of a new civilian agency, but instead of following this recommendation the govemment of the day increased the number of civilian members of the RCMP's Special Branch (as the RCMP Security Service was then called). By 198 1. the time had corne to accept the recommendation to create a new civilian agency. Open Source Information - A True Collection Discipline
On 23 January 198 1 (although not printed for distribution until August 198 1), the
Commission presented its two volume Second Report. This Report examined the actual needs for the secunty of Canada. the current situation as it existed. the past situation (with the RCMP Security Service), and a plan for the fùture creation and operating methods of a
Canadian intelligence service - what they termed -*asort of -manuaI' for a security intelligence agen~~."~Specific recommendations were made regarding every possible aspect of a future intelligence service. including information collection methods and the use of open source infonnation.
The Second Report concluded that an intelligence service should collect everything from open sources through to classified information obtained using covert methods.
The security intelligence agency must be authorized to employ a variety of investigative techniques to enable it to collect information. The means available to it must range al1 the way from studying open sources of research matenal and obtaining infonnation from citizens, police force and government agencies (Foreign and domestic) to using much more covert and intrusive methodse6
The Commission defined information from open sources as "public information from the news media, written publications, and attendance at public meetings"' and deemed that a
Canadian intelligence service should be able to co1lect and analyse this open information
"so long as it relates to the agency's basic fùnction of providing intelligence about threats to the security of Canada."8 Open Source Information - A True Collection Discipline
The McDonald Commission was harsh in its condemnation that the RCMP Security
Service had not only ignored open sources but had not used this material to create an al1 source intelligence product. They noted that "the RCMP Security Service has not developed a sufficiently strong capacity to draw upon such public sources or to integrate such information with information obtained from covert so~rces."~As such. the McDonald
Commission noted - in what would becorne a recommendation to the Goverrunent - their belief that an intelligence service needed not only a research service but a research service that was integrated with the other functions of the service. They wrote that:
it is essential for an effective security intelligence agency to develop a strong research capacity closely integrated with its investigative activities. The agency's research activities shouId provide understanding of the social, economic and political context, national and international, within which threats to Canada's intemal secunty arise."
The Commission stressed that the research capacity needed to be integrated with the investigative activities, making it an integral part of the hnctioning of the intelligence service. as well as providing the contextual information surrounding these same activities.
This would make open source information a key player in the intelligence process. In addition, the Commission felt that the direction for collecting open source material should parallel the intelligence priorities of the government.
The collection of information from open sources should be directed by a planning process which reflects the intelligence pnorities of the govemment. [...]Through its Open Source Information - A Tme Collection Discipline
monitoring of public sources of information [the security intelligence agency] should alert the government to new sources of activity possibly threatening the security of Canada. ' '
This would ensure that open source collection was following the same directions as the investigative activities. and that the monitoring of open sources would enable the intelligence service to alert the governrnent of potential threats.
In the context of the analytical function, the McDonald Commission examined previous attempts by the Security Service to establish separate research groups. When the research groups were kept separate from the operational branches, the operational personnel were reluctant to share information. and suspicion and resentrnent grew as to the work done by each. While this initial attempt did not seem to meet with much success. the McDonald
Commission put fonvard a recommendation for a revised scenarïo. They suggested that a small research group could be created "that does not formally report to any of the operational branches but is available to them as a centralized service." This pool of researchers and w-riters would be seconded "to work with their operational people." It was beIieved that:
such temporary working groups within the agency would bring together the writing skills and farniliarity with overt sources which the centralized pool of researchers would possess, with the 'street' knowledge and access to covert sources of information which are the forte of those in the operational branches." Open Source Information - A Tme Cotlection Discipline
In terms of the use of open source information within an intelligence service. this suggestion presents a viable and promising model. The use of open source collection specialists. as a mobile tearn of "temporary working groupst could be partnered with analysts and intelligence officers in the operational branches to create an al1 source team, which wodd work together to collect information and prepare analysis.
The McDonald Commission was unequivocal in its condemnation of the RCMP's security service for its disregard of open sources. The recommendations were clear that open source collection was a valid alternative to collection of information through intrusive methods, and that the means to collect open source information should be made available to the intelligence service. According to the Commission's report. open source information needed to be integrated into the intelligence process, be part of investigative activities. provide context for threats to Canada, be directed by govemment-set priorities. and be monitored for potential threats to Canada. The Commission's suggestion for the creation of ternporary working groups to work directly with the operational branches is worth further study. The McDonald Commission laid the initial ground work for a successful use of open source information by a security intelligence service, and presented many recommendations. These ideas are as valid now as when they were first presented. Open Source Information - A True Collection Disciphne
Centre for Conflict Studies
One of the effects of the McDonald Commission was to generate a number of articles and commentaries about what form the yet-to-be-named new intelligence service should take.
One of these was a study completed by the Centre for Conflict Studies. a University of
New Brunswick (WB)think-tank. The study examined in minute detail how the new intelligence service could exploit open source information. The study. Open Sources and the Secriri~ylnlelligencr Function, was undertaken by four well-qualified individuals:
Maurice Tugwell - The director of the Centre, and a retired senior officer with the British Amy. who wrote his doctorate on terrorism and who has authored nurnerous books on conflict and security; David Charters - The deputy director of the Centre, who is a graduate of Kings ColIege. London and a renowned terrorism specialist; Rodney Cooper - An associate professor of computer science at the University of New Brunswick. who specializes in database management and cryptography; Michael Mcguire - A law librarian at UNB who bolds an LLB and a Master of Library Science.
These four individuals undertook a detailed study "to investigate open sources likely to be of potential use to Canadian security intelligence and to discuss in outline how material from these open sources might be collected and stored."13 The Terms of Reference were detai led in Annex A of the study, and indicated that the project hoped to contribute to:
the development of a mode1 of information management system for the Open Source input into the new Security Intelligence Service, with intelligence Open Source Information - A True Collection Discipline
production the prime objective. This project examines open sources and makes recommendations on sources and selection criteria."
The authors set out to examine al1 publicly available material and to create lists of open source material which should be part of a new intelligence service. Their criteria when studying this material included "relevance. availability. cost and value." and both the traditional print material (news, books, periodicals) as well as the more modem online database services. Material which should be obtained was separated into two categories: material which should be purchased on a regular basis. and material which should be loaded into in-house database systems. Finally. the WBteam was to make detailed recomrnendations on staffing issues, space requirements and layout. and how this open source unit should operate within an intelligence service, including the interplay between this open source unit, intel 1igence analysts and covert sources. ''
In the final report, the level of detail was excellent. Annex B designated subject areas of material to be collected, covering espionage, sabotage, foreign interference, terrorism and revolutionary subversion. Included in Amex C were lists of specific print material tities that should be obtained, organized under the headings of books and studies; periodicals
(news magazines, newspapers, scholarly and specialist joumals, political, ethnic and activist periodicals); and printed information services. Separated out in Annex D were lists of commercial online databases to be accessed. Open Source Information - A True Collection Discipline
The Centre for Conflict Studies also compiled a listing of institutes and individuals. It was intended that these "Human Sources" would serve as subject specialists and experts which the intelligence service could draw upon to obtain specialised information on particular topics. It was also that the intelligence service would foster debate and stimulate research at an academic level. and perhaps more irnportantly. that they would do al1 this using publicly available unclassified information.
While it has been seen that open source relates to al1 topics, the authors of the study limited open source information to "a11 public, unclassified rnaterial that relates to the subject matter identified in Chapter 1 ."16 The role of what they termed the Open Source
Unit (OSU) was:
to provide the security intelligence service. and particularly the analysts, with:
1 . Incoming material relating to various fields of research responsibility, with emphasis on what seems important - the selective dissemination of information (SDI): and
2. Retrievable information that can be referred to at any time when some research topic creates a demand - retrospective search capability.
These two functions compliment one another, and interact with information arriving from covert sources and instructions from above which establish intelligence priorities."
It was recognized that while it was good to have a standard practice of acquiring material, the OSU of an intelligence service needed to go one step further. The staff of the OSU
1 64 Open Source Information - A Tme Collection Discipline needed to be especially aware of what the intelligence analysts were working on so that they could then acquire the appropriate material. This would be accomplished by "close, relaxed contacts between analysts and operators. and regular updates of the profile^."'^
The open source resources to be acquired by the OSU were detailed in three separate chapters. covering printed sources, online databases and "humano' sources. The printed sources examined the importance of acquiring the appropriate material for an intelligence service. and noted (along with a detailed list in the Annex) the specific books and studies, general news magazines. newspapers. SC holarly and speciat ist joumals, as well as political, ethnic, and activist periodicals to be obtained. The report also examined media monitoring, and the importance of undertaking this monitoring on a continuous basis. twenty-four hours a day every day of the week.
For the external databases and services, the study detailed the importance of both intemal database systems (where information would be on devices attached to an interna1 computer system, and not linked to the outside world) and the external systems (the commercial online database services). The external systems indudes suppliers such as
Dialog, Lexis and Infoglobe (now part of Dow Jones). These databases covered news and news-related items. politically-oriented non-news databases and special services. The importance of these databases was noted as being their cornprehensiveness and selectivity, timeliness, irnpartiality, as well as confidentiality and security of access. Again, there was
165 Open Source Information - A True Collection Discipline an annex listing in detail the names of the various database services and the scope of the coverage in each. The seventh chapter included the specifics on how to create an information retrieval system and for data base management. in other words, how to set up an in-house electronic catalogue and full-text databases for information retrieval.
An entire chapter was devoted to the area of human sources as they pertained to open source information. Distinct from the traditional recruiting of human sources for intelligence work, this referred to the means by which an intelligence service could
"cultivate" experts who were at the forefront of research in their fields. This was suggested as a means to have intelligence analysts compare their own work to that being done in the field, and to have their own views challenged by experts. According to the authors of the study. there were two different types of human sources - the individual researcher or schoIar, and the specialist research institute or think-tank. The intelligence analyst should maintain these contacts c'the open source unit cannot undertaken [sic] this on its own. It will be up to the analysts to develop the most useful persona1 and institutional contact^."'^
When discussing how the Open Source Unit should be organized, the study commenced with an examination of the importance and value of an intelligence service using open source information. It was indicated that "The value of the [Open Source] Unit will depend in part on the quality of its output, and in part on the use that is made of that
166 Open Source Information - A True Collection Discipline output by the rest of the security intelligence ser~ice."'~This was perhaps intended as a reminder that unless open source was used, there would be no open source unit. and unless the quality of the open source was good. it would not be used.
An essential component to rnaking this work was the level to which open source information wouId be integrated within the intelligence service:
We recornmend that the open source unit be completely integrated within the service. [...] [ 1 If performance is to be good, the operators should not feel that they belong to a secondary support act, or that their work excludes them from that manifestation of trust which is implicit in the granting of security clearance and, as necessary, the sharing of classified information, on a 'need to know' bais."
The authors recognized the necessity for a partnering between those working in open sources and those working in operations so as to ensure an integration in their work. In keeping with this. the OSU must not be made to feel like its work was of subordinate value. An important indication was that the staff in the OSU needed to have the sarne level of security clearance as the operational staff to be able to know al1 information relevant to the issue to search for information.
The study thus recognized one of the crucial reasons as to why intelligence services required their own interna1 open source units and why out-sourcing open source research - be it to use subject-specialist experts or commercial information brokers - Open Source Information - A True Collection Discipline would not work: the two components of operations and open source collection needed to work seamlessly. as equal partners. sharing al1 information. If one side had a lower security classification blocking access to crucial documents or restricting knowledge of certain components due to a "need to know." the open source research would not be as complete or as useful as if it had been cornpleted by an individual on equal footing with the intelligence analysts and the investigators.
The study recommended that integration would work best if the OSU staff was "a mixture of intelligence officers and support staff, and the latter should be security-cleared to play a full part in the work of the security intelligence service as a whole."" The suggestion was to rotate intelligence officers through the OSU, so that they could lem about open source information, and so that their services as analysts could be used. However, an alternative not explored by this study would be to have the OSU staffed with professional. security- cleared information specialists who were knowledgeable of the requirements and undertakings of the operational units, and to undertake an integration of the information specialists with the operational units.
The Centre for Conflict Studies' publication considered whether or not the public should have access to the open source unit. They indicated that this would be contradictory to encouraging a security-cleared operational level access by the OSU staff: "[Public] accessibility would involve isolating the open source unit fiom the rest of the service and
168 Open Source Information - A Tme Collection Discipline would demolish the integration concept which is considered essential.'"' It was deemed that the sharing of resources with the public was a lesser consideration than achieving a full integration of resources and services with the operational sections of the intelligence service.
The Open Source Unit and its staff needed to be regarded as a crucial component of the collection of information to be included in the intelligence product. As recommended by the study. "the credibility of the open source unit within the service will be enhanced if it is treated as part of the intelligence-gathering function."" As such, the authors appeared to be recommending that open source become a collection function equal to other collection disciplines. and a recognized component of the intelligence process.
In the final chapter. there are i 8 recommendations. While some of the recommendations addressed issues such as the number of staff, physical layout of the Open Source Unit, and traditional library elements such as acquisitions, indexing and other technical requirements, there were also a number of recommendations that pertained specifically to an open source unit in an intelligence service. This included:
12. The open source unit should be fully integrated into the security intelligence service, having a staff composed partly of intelligence officers and partly of support staff. Security clearance should be mandatory.
13. Close working links between analysts and the open source operators should be Open Source Information - A True Collection Discipline
encouraged. It would be usehl if some potential analysts were attached to the unit pnor to their appointment, to Ieam search techniques. Likewise, trainee intelligence officers should be attached as part of their training to other parts of the unit.
14. Strong professional links should be developed between analysts and others in the service with the international defence/security academic community. The open source unit should act as a bridge.
16. There should be no public access to the open source unit.'5
Overall. the study prepared by the Centre for Conflict Studies was an ideal blueprint for an open source unit within an intelligence service. With minor updating of sources and titles, and the addition of the resources on the Internet. this study would still be relevant today as a valid plan of action to establish a speciaIized information centre. While there is some disagreement regarding the use of subject specialists and experts from outside the intelligence service. the study advocated points which are of crucial importance. This included the need for appropriate clearance levels by OSU staff, the need to integrate the work done by the OSU information specialists with the work by the intelligence analysts and operational investigators, and the need to regard open source collection as an important function of the intelligence process.
Security Intelligence Review Committee
The Secunty Intelligence Review Committee (SIRC) was created in section 34 of the
CSIS Acf.This section stipulated that "There is to be established a cornmittee, to be
170 Open Source Information - A Tme Collection Discipline known as the Security Intelligence Review Comrnittee, consisting of a Chairman and not less than two and not more than four other mernber~."'~Independent from CSIS, the primary role of SIRC is to ensure that CSIS is appropriately executing its roles and functions. and to report their findings to Parliament. SIRC reviews CSIS reports, directions issued by the Solicitor General, as well as arrangements entered into by CSIS."
Furthemore, SIRC is tasked with compiling and analysing statistics on the operational activities of CSIS.'8 In addition to monitoring and reporting, SIRC is also empowered to conduct investigations with regard to complaints made to the Comrnittee. These complaints could be under the Citizenship Act? the Immigration Act, the Canadicln Hman
Rights ~ct.'~or complaints made against "any act or thing done by the Ser~ice"'~or because of "the denial of a secunty clearance required by the Govemment of Canada.""
From the vecy firsi annual report in 1985. SIRC monitored the use of open sources in
CSIS. Basing their comments on the recommendations set forth in the reports of the
McDonald Commission, SIRC included a section on open sources in the reports for 1985-
86, 1986-87. 1987-88. and 1989-90. In 1988-89, the section on open sources was replaced by the section on the Analysis and Production Eranch (APB). The reports from
1990 through to 1999 had sections on the Requirements, Analysis and Production Branch
(RAP), and made only brief mention of open sources within various sections of the reports. There has never been a section which exarnined an open source unit. Open Source Information - A Tnie Collection Discipline
SIRC Annual Repart - 1984-85
In the 1984-85 report. SIRC noted that as they had only been operating for four months, this was an interim report. with a more complete report to come afier one hl1 year of operation. In this first report, SIRC indicated that its members intended 'ro become intimately farniliar with every aspect of CSIS' activities"" and as such they noted the areas of priority. The third area of priority was --the collection and analysis of information from open sources by CSIS (this was an area of criticism by the McDonald Commi~sion)."'~So while it was too soon for SIRC to report on the use of open source information by the new intelligence service. it was duly noted that this was a key area that they would be monitoring and would describe in future reports.
SIRC Annual Report - 1985-86
The second annual SIRC report indicated the areas of priority for the year ending 3 1
March 1986. Included in this list was "CSIS use of open sources.'"" and a section which specifically examined the use of open sources by CSIS. As before, SIRC indicated that the
McDonald Commission had noted as a "shortcoming" the RCMP Security Service's
"almost complete reliarice on information from covert sources" and the recommendation by the Commission that the new intelligence service needed to develop "a mechanism for collecting information from public sources as an alternative to such intrusive activities as
172 Open Source Information - A True Collection Discipline wiretaps and infiltrati~n."'~
SIRC was encouraged enough by what they had seen to date to note that g'CSIS has taken some first steps towards the use of open sources" and that "the Service is moving in the right direction." However. they admonished CSIS because they "would like to see it more further and faster [...] the library continues to grow, but m~destly."'~The concems noted by SIRC were with regard to who was being hired, the availability of open source information within CSIS and the prevailing attitudes towards open source information.
First. it was suggested that individuals with "broad academic or analytic capability and knowledge of government." and as well "university-trained professionals," might have been more appropriate staff to conduct research. It shoutd be noted that in this context
SIRC was referring not so much to the colIection of open source information as to the analysis of information.
The other two concems noted by SIRC were related directly to the use of open source information and to the recognition of its value. The mernbers of SIRC indicated that "we have not seen evidence to convince us that making open information more widely available within CSIS has been reflected in wider use of this information by intelligence officers in the field." In addition, they noted that "a change in attitude may be as important as increased re~ources.''~'There are two issues of importance here. The second one actually cornes first, in that SIRC realized that the "attitude" towards open source information use
173 Open Source Information - A Tme Collection Discipline in an intelligence service had to be altered before any open source system, or open source availability would have an impact. There was not much success to be had if everyone had access to open sources but refused to use them or to acknowledge the value of using them. The perception of open source information needed to be altered. Following from this. SIRC noted that from what they couId ascertain, there had not been an increase in the use of open information by intelligence officers. They specified "in the field," but did not indicate if there had been an increase in the use of open sources in non-field work.
While SIRC carefully noted the problems in attitudes towards open source information, a lack of its use by intelligence officers and a system that was not going far enough fast enough. they offered no recommendations on how to resolve these issues. Furthermore, in the section indicating future priorities of areas to examine over the next few years, the use of open sources was not indicated. This would seem to imply that the issue was no longer a priority. or that it had been resolved to SIRC's satisfaction.
SIRC Annual Report - 1986-8 7
In 1986-87, SIRC once again examined the use of open sources by CSIS. Concems that the use of open source information was no longer a priority for SIRC were unfounded.
The introduction noted that "some themes will be familiar from our past reports. Our firrn belief that CSIS is not making enough use of open sources as an alternative to covert
174 Open Source Information - A True Collection Discipline investigations is just one e~arnple."~~Listed in the "Table of Contents." the section "Open
Sources" covered two full pages. The focus did not start off with the McDonaId
Commission recommendations. but with a rebuke that one way "CSIS can limit its reliance on intrusive powers is by mining open ~ources.'''~Then. SIRC harshly noted their dissatisfaction with CSIS in it lack of use of open sources:
We are far from satisfied that CSIS takes open sources seriously enough as an alternative to undercover work. The use of open sources rernains a pale imitation of what the McDonald Commission envisaged and what we have repeatedly urged for the sake of both effective secunty intelligence operations and minimum intrusion on personal pnvacy and freedorn~.~'
This paragraph is quite strong in its language, noting the members of SIRC are "far from satisfied" and that the open source use is still a "pale imitation" of what was recomrneided. Furthemore, SIRC rnembers noted that they had "repeatedly urged" for the use of open sources by CSIS. While they acknowledged that the expansion of the
CSIS Headquarters Open Information Centre, and the creation of regional open source units only happened in 1986-87, SIRC was still not satisfied with the level of use of open source information in CSIS.
The problems related to open source information that were noted by SIRC were that:
- CSIS was not "making the most of its opportunities to use open sources;" - Researchers lacked the appropriate experience in research and govemment; Open Source Information - A True Collection Discipline
- Researchers were only temporarily assigned to the open source unit; - Better use needed to be made of the research unit; - Researchers should analyse information and prepare summaries of information: - Statistics needed to be kept to assist in increasing use?
The members of SIRC seemed to envision the open source unit as a research unit. They were correct in larnenting the Iack of open source information used by intelligence officers and to note that opportunities were not being utilized. but SIRC did not comment on the potential of instituting collaboration between intelligence officers and a fully functional open source collection unit. and of having a separate analytical unit. Apart from voicing their dissatisfaction with the status quo, the only recommendation was to maintain statistics on the use of Open Information Centre by the operational units as "a first step towards seeing where effective [open source information] use could be increased.'"'
SIRC Annual Report - 198 7-88
SIRC exarnined the area of open sources in both the chapter on "CSIS Operations" and the chapter "From Information to Intelligence." The latter examined how the intelligence product was made, as well as sources consulted and methods used. Information was defined in this chapter as "the raw material that CSIS works with" and intelligence was the finished product: "information sifted and arranged in such a way as to help users make the right de ci si on^."^^ Open Source Information - A True Collection Discipline
Strategic intelligence was produced by the Analysis and Production Branch, then known as the APB. The APB was seen to rely more heavily on al1 source information than did other sections in CSIS. and SIRC indicated that they were "glad to find that APB's reliance on open sources is growing.'" The growth in the use of open source was based on statistics received by SIRC from the CSIS Open Information Centre, recording a ten percent increase in requests for information from the APB. The value of open source was also noted in the indication that CSIS Reports classified as SECRET were limited in their usehlness as the people who really needed to receive them were unable to read them.'"
This meant that more use of open source information would enable a lower classification of the documents thus enabling a wider distribution.
Under Open Sources proper, SIRC once again noted that the "under-use"4b of open sources was an area of concern to them. They cited the use of open sources as an
"alternative to intrusive investigation" and also indicated their recent discovery that
Australia's Office of National Assessments "relies heavily on published information."
While it was acknowledged that the Information Centre was maintaining and adding to its open sources. and that it provided library and database search services, SIRC signalled that there was still a problem in that "the Service seems to give more credibility to information it has ferreted out through investigation than to information available to any astute reader.'"" Open Source lnformation - A True Collection Discipline
SIRC indicated that the Independent Advisory Team (IAT). struck in 1987 to review the concerns raised by SIRC in their 1986-87 report, echoed these concerns and indicated as well that the Information Centre should be made more relevant to the activities of the intelligence analysts in CSIS. The SIRC report included a sumrnary of the IAT report findings. indicating that SIRC found the findings of the IAT both relevant and important.
A brief mention was made in the 1987-88 report of the statistics kept by the Information
Centre. It was indicated that there had not been statistics collected long enough on the same topics to make real comparisons, but that initial results seemed to indicate that requests by the operational branches for open source material were declining. SIRC did note however its pleasure that regional reference centres had been opened in Montreal,
Toronto and Ottawa, with additional reference centres to open shortly in Vancouver and
Edmonton.
SIRC Annual Report - 1988-89
For the first time, "Open Sources" did not appear in the "Table of Contents," but this did not harnper SIRC from making mention of open source information in the report. The opening section reviewed the first five years of the SIRC, and addressed the issue of open sources. It was indicated that: Open Source Information - A True Collection Discipline
We have also stressed the need to move from an investigative to a research approach by CSIS. Not, of course. that the Service cm do entirely without investigation on classic police models - tracking the movements of suspected terrorists. listening in on conversations that may point to espionage. and so on. But it has seemed to us that the Service does not adequately exploit so-called open information."
SIRC concluded their opening remarks in a section entitled "Unfinished Business." where they indicated ongoing areas to be monitored. The use of open sources was included as an area important to SIRC, and which they would continue to monitor.
SIRC Annual Report - 1989-90
"Open Sources" appeared in the -'Table of Contents" for the last time in the 1989-90
SIRC report. For the first time it was noted that:
there is no practical way of measuring open sources [...] as an alternative to investigation. Investigators and analysts can use open information that has corne their way in their own, private reading. And it would be virtually impossible to know whether open information collected by analysts was actually u~ed.~~
SIRC recognized the difficulty of measuring the levei of use, or the percentage of open source information included in the intelligence product, especially when information that was open could be obtained either from formal collection or informally through private readings. SlRC did not examine the possibility of measuring the value of the open source, instead of the quantity of open source information that was being used. The report
179 Open Source information - A True Collection Discipline indicated that the requests for open source information from the Information Centre had increased 45 percent fiorn the previous year.
Of interest in this report was a note that "there has been direction by the Solicitor General to try open sources first. before there is a recourse to investigation."50 The Solicitor
General. the Honourable Pierre H. Cadieux. issued a direction on General Principles and
Policies Governing the Conduct of Investigations which called for a greater use of open source information. especially when it might alleviate an unnecessary risk of intrusion into an individual's pri~acy.~'Corning from the Solicitor General, this direction would suggest that the use of open source information was still not at levels deemed acceptable to the
Ministry. and that this was seen as a way to encourage an increased use of open source information.
SIRC Annual Reports - 1990 tu 1998
From 1990 to 1996. open sources are not mentioned in the SIRC reports. It was not until the report for 1996-97 that open source was mentioned, and this was not within the context of open source information being used in the intelligence product or during the intelligence process. In 1996-97, the SIRC report mentioned open source as part of the exchange of information between CSIS and foreign agencies. It also mentioned that the
Analysis and Production Branch used "publicly available information" in its environmental
180 Open Source Information - A True Collection Discipline scanning.
SIRC Annual Report - 1998-99
In the first section called "A Review of CSIS Intelligence Activities," the 1998-99 SIRC report had a brief introductory paragraph on how the intelligence product was made. a review of the key elements of the mandate of CSIS. and how this information is collected and processed. It was noted that *'Counter Intelligence and Counter Terrot-ism branches perform the collecting function. while Requirements, Analysis and Production (RAP)
Branch has a major. though not exclusive, role in producing reports and advice."''
Surprisingly. afier a11 the SIRC and independent reports produced in the 1980s which focussed on the need for the Service not only to collect open source information but to incorporate it into the functioning of the Service. open source information was not mentioned at al1 in this overview of the intelligence function.
By indicating that Counter Intelligence and Counter Terrorism are the branches that do the collecting, SIRC was completely ignoring the collection of open source information. Was it because the collection and use of open source material had become so pervasive that it was being taken for granted? That it had become so routine it was not worth a mention?
Or had it become forgotten in the desire to elevate the collection of secret material (or the covert collection of material) to a higher level? Nowhere else in this report was the Open Source Information - A Tme Collection Discipline collection of or the incorporation of open source material discussed. Nowhere was reference made to the importance of the open source unit or its roIe in the intelligence process. Nowhere in the in-depth audit of RAP - whose major analysis role is recognized
- was the collection or use of open source mentioned.
SIRC conducted this audit of RAP between September and November 1998, and their goaI was to "lem about the Branch's structure, its production processes, and the manner in which pnorities are set and implemented."53 This would have seemed to warrant inclusion of the collection of open source material, but it was not noted. SIRC made reference to the previous study by Osbaldeston in 1987. and that this report highlighted arnong other things the need to amalgamate the various components into one fünctional unit (in other words open source research should be brought in). However. no mention was made of the important considerations regarding open source as noted in the 1987 report. None of the concluding recommendations and major issues discussed open source collection or the use of open source material. While it was noted that there were complaints that RAP reports were "sometimes over-classified considering the information they contained, thus lirniting their distributi~n,?'~'there were no recornmendations on how to arnend this, such as a greater use of open source information. Open Source Information - A True Collection Discipline
SIRC - General Comments
SIRC began its annual review of CSIS with the questions raised by the McDonald
Commission firmly noted as priorities to be addressed for each review. They continually raised questions about not only the use of open source information by the intelligence semice but also how it was being collected. by whom and how much of it was being used.
Recornmendations were made on a regular bais. However. during the 1990s the issue of open source appeared to have become a non-issue from the standpoint of SIRC and their review of CSIS activities. While the evolution of RAP continued to be of importance to
SIRC, it was the quality of their strategic analysis and the treatrnent of their staff that seemed to be of greater importance than the use and integration of open source material.
No indication has been given if this issue will be examined in future reports.
Reports and Studies
People and Process in Transition - 198 7
In July 1987, then Solicitor General James Kelleher appointed an Independent Advisory
Tearn (IAT) headed by Gordon F. Osbaldeston. A former clerk of the Pnvy Council,
Osbaldeston was to review the criticisrns and recommendations made by SIRC in its
Annual Reporf 1986-87,and to prepare recommendations for the Solicitor General of
183 Open Source Information - A True Collection Discipline
Canada.
The report of the IAT. People and Process in Transiiion was made public in November
1987. The IAT exarnined the use of open source information by CSIS and presented several recommendations. This report concurred with SIRC that the intelligence product prepared by CSIS "rel ied too heaviIy on investigative, case-oriented, covert intel 1igence and does not make enough use of open source information; and that the research function within CSIS is poorly organized and resourced and is not used to its full p~tential."~~
In discussing the open source research Function within CSIS, which the IAT report specified was more appropriately called a reference function, the [AT believed it
"indispensable" for CSIS not only to have a fùlly equipped and hnctional reference centre but that this should be more than just a service. The IAT believed that open source reference and research shouid be directly tied to the analysis being done at CSIS. Having a closer and more integrated relationship would ensure that open source information was being used and also that the work being done on open sources was following the sarne direction as the Service.
A properly staffed and equipped reference section should be an indispensable component of the research and analysis function. The Open Information Centres, and the reference function generally are improperly staffed and under-resourced. [...]These centres are considered a 'service' and, since they are not Iinked directly to the analysis organization, they suffer from a lack of guidance and direction? Open Source tnfomation - A Tme Collection Discipline
The report attempted to establish various reasons as to why CSIS might not have been using open source material to the füllest extent. However. the main reason was quite sirnply because a proper open source system was not in place.
The absence of clearly defined intelligence priorities. the lack of a coordinated system for production. and inadequate reference facilities go a long way towards explaining the Service's apparent hesitancy to exploit open source material to its full potential. It cannot be attributed simply to the 'case-orïented approach of police work.' Intelligence analysts will use whatever information is available to prepare their reports. whether drawn from open sources or not. so long as it can be ~erified.'~
This rneant that Osbaldeston found that the physical set-up and the organizational infrastructures needed to exploit open source material were lacking. It was feIt that open source resources would be widely used if they were available. To follow on this. three of the final recommendations from the Osbaldeston report presented suggestions on how to improve access to open source material.
Recommendation 1 1 : The three components of the research and analysis function (operational analysis. strategic analysis, and reference information) must be placed under one functional direction.
Recommendation 12: Reference centres should be staffed only with properly qualified research assistants and equipped with extensive reference material in both official languages.
Recommendation 1 3 : CSIS should continue to improve the quality of its threat assessments and make every effort to enhance its use of open information. On Open Source Information - A True Collection Discipline
balance we remain convinced that important threat assessments, certainly at the strategic or environmental level, could be cornpleted primarily on the basis of open information. 58
The recommendations insisted that open source research needed to be a component of the intelligence tearn. not a separate and disparate entity with no relation to the work undertaken by CSIS. Furthemore, the staff needed to be properly qualified to do their work. and to have the appropriate tools they required. Finally, the recommendations indicated to what extent the IAT thought that CSIS should be using open source material, noting the area of threat assessments. thus recognizing the importance of open source, and indicating concrete ways in which it could be incorporated into CSIS products.
The Osbaldeston Report was another validation of the need to have open source information as an integrated component of the intelligence process. While it was recognized that CSIS was making progress in the use of open sources, it was noted that the reference service was still not properly organized and that open source information was under-utilized. It was further noted that open source needed to be more than just a service. becoming integrated into the operational activities of the Service. As a first step, the appropriate infrastructure needed to be established to allow for qualified staff, and appropriate materials and resources. The conviction remained that open source information was of value and needed to be incorporated into the intelligence process. Open Source Information - A True Collection Discipline
In Flux: But Nof in Crisis - 1990
The September 1990 report In Flux: But No? in Crisis. prepared by the Special
Committee on the Review of the CSlS Act and the Security Offences Act, was in response to the Order of Reference of 27 June 1 989. As mandated by the CSIS Act, a review of the
Canadian Security Intelligence Service was to be completed once the Service had been in operation for five years.
This report provided details on the previous reviews and commissions on security and intelligence. and examined the mandate of CSIS, the management practices, controi and accountability. and the review mechanisms (the Inspecter General, SIRC and Parliament).
The only chapter which remoteIy reviewed the question of the collection of information was Chapter Nine, "The Control of Investigative Techniques." However, neither this
Chapter nor the report itself examined the question of the use of open sources by CSIS.
The Govemment's response to this report, On Course: Nufional Security for the 1990s, was tabled in February 199 1. As noted in the foreward, "On Course sets out, for the first time in a comprehensive manner, how the 1984 legislation has been implemented and how the national security system now fùncti~ns."'~Again, the use of open source information was not discussed. Open Source Information - A True Collection Discipline
Auditor Generaf of Canada - Chapter 2 7 - 1996
Chapter 27 of the Auditor General of Canada's Annual Report 1996 was a study of the
Canadian intelligence community. Entitled '-The Canadian Intelligence Community:
Control and Acc~untability,~the stated objectives of the report were to provide an overview of the Canadian intelligence community and to assess the existing control and accountability arrangement^.^^ The responsible auditor for this report was Henno
Moenting, with Rona Shaffran and Ron Wolchuk as part of the Audit Tearn. While the report did not specifically examine the issue of the use of open source information, it is mentioned.
Intelligence is defined in this report as information from both unconventional sources and from conventional sources such as the media. It stated that intelligence was:
information needed by the govemment that, in whole or in part, is not available from conventional sources. The distinguishing characteristic of intelligence, therefore. is that it requires having access to information collected by 'secret,' or clandestine. means. Information gathered in this way cm be used in either a raw or assessed form. When assessed, such information is fiequently interpreted in combination with other information available from conventional sources; for example the prht media. Both raw intelligence, and assessed intelligence that is objective and policy-neutral, cm contribute to infomed policy analysis and decision making by the g~vemment.~' Open Source Information - A True Collection DiscipIine
Thus, the raw information obtained through secret means (information which is either classi fied or unclassi fied) is combined with information obtained frorn unclassified
6'conventional" sources to becorne an assessed piece of information. This would also be information which is called analysis, where the various components have been analysed and synthesized into one piece.
As to the collection of information, the report indicated that the governent was not at that time assessing "actual collection against pnorities and identified gaps." but whether or not the intelligence product reflected and answered the needs of the intelligence product consumers. As such, it was not the making of the product or the information going into the product that was under review. Section 27.90, however, recognized that there were
"significant limitations and challenges when evaluating intelligence collection programs.'"
Chapter 27 briefly mentioned that open source information was a part of the intelligence product, even though open source was narrowly defined in the report as "print media."
The report noted the significant gaps in actual collection but did not address how open source information collection might assist in closing these gaps.
Kelly Commission - 1999
Chaired by Senator William M. Kelly, the Special Senate Committee on Security and
Intelligence reviewed the current security and intelligence "environment" in Canada, the
189 Open Source Information - A Tnie Collection Discipline crisis response system as it existed, various emerging issues, and the existing leadership and CO-ordinationof the Canadian security and intelligence community.
The focus of the report was neither the collection of information and intelligence nor the intelligence process itself. However, there was a mention of open source information. and another section noting open source imaging. In a bnef discussion on the Govermnent's threat analysis capability. the use of open source information was raised:
The Committee also heard proposals that the security intelligence comrnunity spend less resources on collection and more on analysis of intelligence. it was pointed out to the Committee that in today's information society there is almost a surfeit of information, mostly from open sources. Witnesses from the security intelligence community disputed this proposal pointing out that much of the information is not necessarily reliable, nor necessarily germane to Canada's interests and often becomes available after an event or after the subject becomes t~pical.~)
This passage indicated that it was suggested that the quantity of information now available in public sources shouId result in the intelligence community spending less on collection - presumably collection through covert methods. It was implied that open information could be obtained with less resources and at a lower cost, thus enabling a redistribution of financial resources to be invested in analysis. The response from some in the intelligence comrnunity was that open source information generally was available too late, was unreliable and was not necessarily on topic. Open Source Information - A Tme Collection Discipline
CSIS - Public Reports
The Public Report 1991 was the first report produced by CSIS, and was "to provide
Canadians with a more complete picture of CSIS. as well as a greater understanding of the role it plays in protecting Canada's national ~ecurity.''~The 1991 report indicated that
CSIS "gets much of its information from open sources. These included newspapers, periodicals. academic joumals, foreign and domestic broadcasts, official documents and other published material.'"' This open source information was combined with intelligence obtained from foreign govements. human sources and technical intelligence to create an al1 source intelligence product. In addition, it was noted that open source information was obtained by CSIS security liaison officers at Canadian diplomatic missions that are located overseas. This was "openly-available information on global trends which may have
Canadian security impii~ations."~~
Subsequent CSIS public reports volumes showed that the use of open source information by the Canadian Security intelligence Service has not changed. The Service continues to indicate that open source information is used as a component in the al1 source intelligence product. It has been written that "intelligence analysts use their knowledge of regional, national and global trends to evaluate al1 types of information, including that from open
source^."^' In a subsequent year, it was indicated that "through its mandated investigations in Canada, the analysis of both classified and open information and the use of its
191 Open Source Information - A Tme Collection Discipline international liaison network, CSIS contributes to the govemment's overall assessrnent of the threat to Canadian interests.'"' Finally. it was noted that "the analysis yielded from classified and open information is shared with other government departments and agen~ies."~'
The 1998 Public Report noted the use of open source as a component used by the
Requirements. Analysis and Productions Branch in researching issues of potential interest, and as a product which they prepare for distribution:
Resources of the Sentice's Requirements, Analysis and Productions Branch are tasked to study open information from various sources for issues of potential interest. [...] The Service seeks by these means to identifi emerging issues and conflict which may threaten public safety or national security. Unclassified reports which are produced based on information collected in this process are published by the Service.70
CSIS - Current Use
As indicated in CSIS public reports, and various other documents, open source information is used extensively by the Canadian Security Intelligence Service.
Ward Elcock, the Director of CSIS, has indicated that "the CSIS Open Information
Centre is an integral part of CSIS" and further that "CSIS is committed to making effective use of open sources in al1 aspects of our ~ork."~'CSIS has in place an
192 Open Source Information - A True CoIlection Discipline infrastructure to support an open information centre staffed by open source information specialists. indicating that the Service has not only heeded the earlier advice in reports such as the McDonald Commission and Osbaldeston's People and Places to make use of open source information but that a formal resource centre dedicated to collecting open source information has been created and is maintained. As noted by the Deputy Director
Corporate of CSIS. Rick Bennett. "We in CStS take pride in our Open Information
Pr~grarn."~~
At the 1994 Canadian Association for Security and Intelligence Studies (CASIS)
Conference on Intelligence and Analysis, Director Elcock spoke at length about the
"integration of information resources," the "explosive information growth," the "fa11 of the information ba~-rier"'~and the use of open source information. He indicated that:
Open source collection is the easiest, safest and fastest way of producing an intelligence product tailored directly to the needs of the client. In fact, 1 think it is accurate to Say that up to 80 per cent of the input to intelligence analysis in some operations cornes from open so~rces.~'
Director Elcock went on to detail the importance of an intelligence service in sorting through the vast arnounts of information that is currently available, to assess that information and to combine open source information with covert information to provide reliable and timely information to policy makers. Open Source Information - A Tme Collection Discipline
In 1996. the director of CSlS was awarded the Golden Candle Award. This Award was
presented by the US Company Open Source Solutions, to recognize "government and
industry organizations and individuals who help minimize spying and industrial espionage
by demonstrating the nchness and utility of 'open sources'."75 The press release indicated
that the director was receiving this award
for his public statements which unequivocally document the fact that for his [intelligence] service, open sources comprise 80 percent of the all-source product, and for his commitment to creating unclassified intelligence products which cmbe shared with the private sector."
Further use of open source information has been indicated in media reports such as the coverage of the Federal Court immigration case involving Hanui Abad Rahim al-Sayegh.
The public summary of the secret evidence presented to the judge included information about the terronst organization Hezbollah." It was indicated that this public evidence
included "hundreds of pages of media and intelligence newsletters" that documented that
Hezbollah was in Canada. It also included "a 1996 article by Yossef Bodansky, a senior editor of Defence & Foreign Affairs' Strategic Policy" which made reference to a
Canadian delegate who attended "a major te~oristsummit in Tehran."7RThis use of open source information as support documentation presented during an immigration case indicates a use of open source information by CSIS in a variety of aspects of their work. Open Source Information - A Tnie Collection Discipline
Finally. current documentation by CSIS about the intelligence process indicates that open source collection is an accepted component within this process. As indicated in the CSIS document on the security intelligence cycle:
Information from members of the public, foreign govement and technical interception of communications is combined with information from open sources including newspapers, periodicals, academic joumals. foreign and domestic broadcasts. official documents and other published rnateriaL7'
In addition. CSIS security liaison officers at Canadian diplomatic missions abroad "collect and analyse openly available inf~rmation"~~which is sent to CSIS intelligence analysts to be prepared into usehl secutity intelligence.
Conclusion
Created in 1984, the Canadian Security Intelligence Service was the new intelligence service mandated to replace the Royal Canadian Mounted Police Security Service. Even before it came into being, reports such as the one from the Senate's McDonald
Commission were prescribing how the new service should be established and suggesting what they considered as potential best practices for an intelligence service. A predominant recommendation of this Commission was that the new service integrate the use open source information into the intelligence process. Following this was the blue print created by the Centre for Conflict Studies. Open Sources attd the Security Intelligence Funclion
195 Open Source Information - A True Collection Discipline presented detailed lists of matenal to be acquired, services to be accessed and processes to be implemented for the creation and maintenance of an Open Source Unit. The recommendations emphasized the importance of maintaining an open source research unit where staff worked as equal partners within the intelligence process. As with the
McDonald Commission, it was recornmended that the open source unit be integrated with operational activities.
The 1980s saw a series of reports by the Security Intelligence Review Committee. where it was indicated that monitoring CSïS's use of open source information was a priority of the
Committee. Report after report indicated the disappointment of SIRC that open source was not being used sufficiently and that an appropriate infrastructure was not in place to ensure its use. However. during the 1990s, SIRC did not report on the issue of open source information. The Osbaldeston Report exarnined the issue of open source, and the fact that it was not being widely used. The Osbadeston Report showed the need to have an open source unit that was integrated with the operational sections of CSIS, and that an infrastructure needed to be in place to respond to open source needs. More recently, the
Senate's Kelly Commission noted that some cornments had been made as to the quantity of open source information that was available, and that more use should be made of this publicly available information. Some responses from the intelligence community indicated that the attitude of some towards the value of open source, and its place in the intelligence process, have not changed since the early 1980s. Open Source Information - A Tme ColIection Discipline
Current CSIS and SIRC reports do not make detailed references to the use of open source information by CSIS. However. the indications that are there, as well as in the media, suggest that open source information is used throughout a variety of activities in which
CSIS in engaged. It could be understood that the use of open source has become so entwined into everyday use by CSIS that there is no longer any need to separate it out for comment or to dwell upon how or where it is being used. Moreover. comments by both the Director and the Deputy Director Corporate of CSIS indicate that CSIS has a vibrant open source program that is an integral part of the intelligence process.
Endnotes
1. In this document, CSIS is also referred to as "the Service."
2. Canada, Cirnadian Security and Intelligence Service Act. Statutes of Canada (1 984, c. 2 1 ). See section 12. Hereafter referred to as CSlS Act.
3. ibid., sections 13 and 14.
4. Canada. Commission of Inquiry Concerning Certain Activities of the Royal Canadian Mounted Police (Ottawa: The Commission, 1 98 1). See Second Report, Vol. 1, covering letter.
5. Ibid.. p. 4.
6. Ibid., p. 5 13, para. 1.
7. Ibid., p. 516. para. 7.
8. Idem.
9. Ibid., p. 5 16, para. 8. Open Source Information - A True Collection Discipline
10. Idem.
1 1. Ibid.. p. 5 16, para. 9.
12. Ibid., pp. 603-604. para. 15.
13. Centre for Conflict Studies. Open Sources and the Security Inrelligence Function, Open Sources and the Secitrity Inrelligence Function, (New Brunswick: University of New Brunswick. Centre for Conflict Studies. 1982) p. 2.
14. Ibid. p. 1 13.
15. Ibid., pp. 1 13-1 14.
16. Ibid.. p. 17.
17. Idem.
18. Ibid.. p. 18.
19. Ibid.. p. 62.
20. Ibid.. p. 99.
2 1. Ibid., p. 100.
22. Ibid.. pp. 101-102.
23. Ibid.. p. 105.
24. [bid., p. 101.
25. Ibid., p. 1 1 1.
26. Canada. CSIS Act. see section 34.(1).
27. Ibid.. section 38.(a)(i-vi).
28. Ibid., section 38.(a)(vii).
29. Ibid.. section 38.(c)(i-iii).
30. Ibid., section 4 1. Open Source Information - A Tme Collection Discipline
3 1. Ibid.. section 42.
32. Canada. Security intelligence Review Committee. Annuai Report 198586. (Ottawa: SIRC, 1986) p. 21.
33. Idem.
34. Ibid., p. 1 1.
35. Ibid.. p. 25.
36. Idem.
37. Idem.
3 8. Canada. Security Intelligence Review Committee. Annual Report 1986-87, (Ottawa: SIRC. 1987) p. 1.
39. Ibid.. p. 12.
40. Idem.
4 1. Ibid.. see pp. 13-14.
42. Ibid., p. 14.
43. Canada. Security Intelligence Review Cornmittee, Annuai Report 1987-88, (Ottawa: SIRC, 1988) p. 35.
44. Ibid., p. 37
45. Ibid.. p. 38.
46. Ibid.. p. 17.
47. Idem.
48. Ibid., p. 3.
49. Canada, Security Intelligence Review Committee, Annual Report 1989-90, (Ottawa: SIRC, 1990) p. 25.
50. Ibid., p. 20. Open Source Information - A True Collection Discipline
5 1. Ibid.. p. 6.
52. Ibid.. p. 11.
53. Idem.
54. Ibid.. p. 13.
55. Gordon F. Osbaldeston, People and Process in Transition: Report to the Solicitor General (Ottawa: Solicitor General of Canada. 1 987) p. 1 8.
56. Ibid.. p. 20.
57. Idem.
58. Ibid., p. 20-2 1.
59. Canada. SoIicitor General, "Foreward," On Course: National Securiiy for the 1 WOs, (Ottawa: Supply and Services Canada, Febniary 1991) [no page number].
60. Canada. Auditor General, "The Canadian Intelligence Community: Control and Accountability," [Chapter 271 Annual Report 1996 (Ottawa: Office of the Auditor General, 1 997), section 27.3 5.
6 1. Ibid.. section 27.9.
62. Ibid.. section 27.90.
63. Canada. Senate. The Reporf of the Special Senate Cornmittee on Security and Intelligence, Chaired by The Honourable William M. Kelly, (Ottawa: Senate, January 1 999) p. 54.
64. Canada, Canadian Security Intelligence Service, Public Report 199 1 (Ottawa: CSIS, 1992) p. 6.
65. Ibid., p. 13.
66. Ibid., p. 1 5.
67. Canada, Canadian Security Intelligence Service, Public Report 1994, (Ottawa: CSIS, 1995) p. 7 and Canada, Canadian Security Intelligence Service, Public Report 1995, (Ottawa: CSIS, 1996) p. 13. Open Source Information - A True Collection Discipline
68. Canada. Canadian Security Intelligence Service. Public Report 1996. (Ottawa: CSIS. 1997) p. 13.
69. Canada. Canadian Security Intelligence Service, Public Report 1997. (Ottawa: CSIS, 1998) p. 7.
70. Canada, Canadian Security Intelligence Service. Public Report 1998. (Ottawa: CSIS. 1999) p. 13.
71. Ward P. D. Elcock, "Persona1 Interview," (Ottawa, 17 March 2000).
72. Rick Bennett, "Persona1 Interview." (Ottawa, 17 March 2000).
73. Ward P. D. Ekock. "Remarks," CASIS Conference (Ottawa, October 1994).
74. Idem.
75. "1996 Golden Candle Awards Recognizes Excellence in Using Legal and Ethical Information Sources to Meet National Needs,'? US Newswire (3 September 1996).
76. Idem. The actual quote is that "up to eighty percent of the input to intelligence analysis in sorne operations corne from open sources." Ward P. D. Elcock, "Remarks." CASIS Con fer ence. (Ottawa, 28 October 1994).
77. Estanislao Oziewicz. "Hezbollah Member Helped CSIS Deportee: Provided Security Service with Evidence Group Set Up Operations Base in Canada," Globe and Mail (7 Apd 1997).
78. Idem.
79. Canada. Canadian Security Intelligence Service, "CSIS and the Security Intelligence Cycle," Backgrozrnder Series No. 3 (Ottawa: CSIS, 1996) p. 2.
80. Ibid., p. 3. CHAPTER 5 - FINDINGS, RECOMMENDATIONS & CONCLUSION
Findings
Open source information is pubIicly available unclassified information. it may be in
traditional print format or in a variety of electronic formats including cd-roms. radio and
tetevision broadcast transmissions, and in a variety of databases. Produced by
govemments, companies, organizations, the media and individuats, open source
information is available from those who produce it, and through vendors such as
bookstores. commercial online databases and the Intemet. Not al1 open source information
is available at no cost, but being free or having a cost does not alter the fact that it is open
source. Open source is much more than a collection of newspaper stories; while open
source includes information reported in the media - both newspapers and news wires -
it goes beyond this to include al1 information which is publicly available. Documentaries,
books, grey literature. govemment publications, think-tank reports. speeches and travel
guides are al1 different types of open source information.
The use of open source information in the intelligence product is not about percentages.
The issue is not that 25 percent or 80 percent of the product includes open source information. The key is that open source information is of value to the intelligence product and to the intelligence process that includes it. The use of open source information can Open Source Information - A True Collection Discipline ensure that resources, both financial and human, are used efficiently. If the information exists in open source, there is no need to mount an expensive covert operation that will take time and people away from where they are better needed. Open source can help to corroborate or refute information that has been obtained through covert means. The 7
May 1999 accidental NATO air attack on the Chinese embassy in Belgrade, might have been prevented by the confirmation of information in open sources. When the information obtained covertly or in classified sources is incomplete. open source can supplement and enhance this existing information, sometimes providing new information. The work done during World Wax- II by the Research & Analysis branch in the Office of Strategic Services showed the tremendous contribution open source information could make, and how conclusions drawn from analysing open source information could both supplement existing information and provide new information that was previously unknown.
In the event that analysts have built-in preconceptions, previous assumptions or attitudes. or social or political views. open source information cm present them with a neutral view and can show al1 sides of an issue. Also, open source can help to avoid mirror-imaging, enabling the analyst to understand cultures and reactions that are not his own. By obtaining open source information, investigators can be better prepared before proceeding with an investigation. The context provided by open source can make sense of the disparate pieces of information, and cm provide a larger picture through which to better understand an issue. Open Source Information - A True Collection Discipline
In order to protect classified sources and operational methodology. open source information can be used. especially in public fora such as court cases. Open source can also be used to protect persona1 freedoms. and to lower intrusiveness, as it is information that is already in the public domain. Finally. open source information cm lower the classification of the intelligence product, as information that cm be confirmed in open sources cm be cited as such. This lower classification aIlows for a wider distribution of the intelligence product.
As previously discussed herein, numerous studies. both in Canada and the United States, have repeatedly indicated their surprise that open source information is not more widely used by intelligence services. Furthemore. these studies and reports have made several recommendations urging for an increase in the use of open source information, and the implementation of appropriate systems and resources to allow for open source collection.
Some recommendations also encourage a closer integration of the open source unit within the intelligence process. Open Source Information - A True Collection Discipline
Recommendations
Open Source Information - A True Collection Discipline
Knowing what is publicly available enables producen and collectors of intelligence to better focus their efforts on that which is not. So crucial is this deterrnination to the overall intelligence process that the Commission find it surprising that more emphasis has not been given this aspect of the Intelligence Community's operations. [...]. In the view of the Commission, the creation of such an infrastructure should be a top priority of the DCI and a top priority for funding.'
It would be difficult to find someone who would argue that open source information is not used by intelligence services, or to Say that open source is not an important component of the intelligence product. However, despite the fact that open source is on occasion referred to as OSMT, it is not really held to be one of the collection disciplines in the sarne way as HUMINT. SIGINT. or TECHINT. It is documented that "elaborate collection management systems exist for each of the disciplines that establish validated requirements and priorities."' American organizations such as the Central Intelligence
Agency (HUMINT), the National Secürity Agency (SIGMT). the Central Imageiy Office
(IMMT) and the Defense Intelligence Agency (MASINT) are known to be the main collectors for their respective di~ci~lines.~However, the structure of the discipline known as OSNT is never discussed, and it is never indicated who is to collect open source information. While al1 of the collection disciplines, open source included, are regarded as important components to the intelligence process, there can be no doubt that the collection
205 Open Source Information - A Tme Collection Discipline of open source is treated differently from the others.
Part of this indifference to the importance of open source information is a result of the casual manner with which open source collection is habitually treated. It is assumed that an analyst with an Intemet connection at his desktop will suddenly have access to al1 the open source information that is required. Moreover, it is expected that he will immediately be able to search the Internet effkiently and effectively to satisfy his open source information requirements. In a parailel situation. should the analyst also be given direct access to signals intelligence or imagery intelligence at his desktop, to control what is searched for. where and by what methods? Such a suggestion would be met with derision. and the response that the analyst is neither trained nor experienced enough to collect signals intelligence or imagery intelligence. It would probably also be added that the analyst does not have the time to be side-tracked by collecting intelligence because his role is to analyse and fuse al1 intelligence that had been coltected.
Why then should the analyst be collecting open source information? 1s the analyst trained to search the wide range of open source information that is available? 1s the analyst familiar with the level and scope of information that is available, and from where it is to be obtained? Once a source for the information has been located, is the analyst farniliar with the complex high-level methods of searching to efficiently and effectively locate what is required? Can the analyst "read" the results once they have been found, format them into a
206 Open Source information - A True Collection Discipline legible format. and understand if the information that has been found is valid, reliable. and what is required? It would never be assumed that an analyst, or an intelligence officer, could or should be collecting signals intelligence or imagery intelligence, or even that an analyst who is not trained as an intelligence officer should be recmiting human sources to obtain human intelligence. So why should it be assurned that an analyst or an intelligence officer should be able to collect open source information?
In fact. the American report Preparing for the Zlsr Centrrry indicated that "collection. as a
Function of intelligence. appears straightfoward, and its necessity is not s~~~ousI~ challenged. [...] In practice, however. this role involves nurnerous complexities."" The collection of open source information needs to be seen as the vital and complex collection discipline that it is. and to be elevated to a position on the same level as the other collection disciplines. As such. it needs to be recognized that the collection oFopen source information requires a dedicated open source unit that is staffed with open information collectors who are specifically trained in the complexities of collecting open source information.
In 1982, the Centre for Conflict Studies recommended that a new intelligence service in
Canada should have an open source unit dedicated to the collection of open source information. The authors deemed that this open source unit and its staff needed to be regarded as a crucial component of the collection of information to be included in the
207 Open Source Information - A True Collection Discipline intelligence product. The study recornmended that. "the credibility of the open source unit within the [intelligence] service will be enhanced if it is treated as part of the intelligence- gathering f~nction."~
The Working Group on Intelligence Reform's 1992 report The Future of US Intelligence did not question whether or not open source information should be collected or used. but by ivhom it should be collected. The authors recognized that certain skills - such as searching expertise - were required to locate al1 available open source information. They believed that these skills were currently not available within the intelligence community.
Moreover, they noted that information specialists had those skills, and that an information specialist therefore rnight be the person to locate, evaluate and fuse this information for intelligence services, or as they noted "to help sort through the welter of source^."^ In addition. it was recommended that an infrastructure to support the collection of open source information should be implemented, and that the collection of information from open sources should be a resource upon which a greater importance should be placedm7
It would appear that the Director of Central InteIligence's Annual Report for the United
S~esInfelligence Cornmunity for 1998 elevated OSINT to an intelligence discipline.
However, upon closer examination, open source is still treated as an aside without recognition of its true importance as a collection discipline. It is assurned that the imminent arriva1 of Intemet access to analysts at their desktop will provide them with the
208 Open Source Information - A True Collection Discipline full range of necessary open source information. While this tentative recognition of the importance of open source is a start, it still does not fully recognize the necessity to have specialised open source collectors in a recognized open source collection discipline.
There would be several benefits to the recognition of open source information as a true collection discipline, and to the creation of an infrastructure to enable its collection.
Specialised operi information collectors. trained in the area of information science, would be able to manage the vast quantity of information that is available, providing a preliminary filtering of information based on the information requirements of the analysts and investigators. The quality of open source information is ofien an issue, and requires a constant evaluation and assessment of resources. Some information needs to be evaluated for its credibility and reliability, while other information needs to be evaluated for its usefulness or its uniqueness to the report being prepared.
While there is a certain misunderstanding that open source is the Intemet, it is neither the only nor the rnost reliable resource to obtain open source information. Open source specialists trained in high-level searching would be able to utilize the more reliable and extensive databases maintained by commercial information providers, and their skills would allow for the rapid evatuation and assessment of information. There would be no need to recreate databases in-house which would have to be maintained on a continual basis, and which would never contain al1 the information, as information specialists would
209 Open Source Information - A Tme CoIlection Discipline be able to access updated international databases as required.
The use of open source information in a regular and consistent manner would enable resources to be used for more costly covert operations. By ascertaining what is first available in open sources, there could be more focus in what is done by covert and often highly technical and expensive operations. From a staffing point, intelligence officers would be used more effectively, not gatherïng information that could be obtained through open sources. This would ensure that human sources and technical collections were highly focussed. and used judiciously. In addition, the use of open source would reduce duplication - if the information already exists in public records, there is no need to seek it out through covert methods.
A recognized collection discipline for the collection of open source information would ensure that open sources were collected in a focussed manner, and that specific directions would be given regarding collection priorities. As it is easier to change the focus of an open source collection than to move a satellite or to mount a covert operation, open source collection would be able to respond quickly and efficiently to new directions based on new priorities.
The recognition of open source as a required collection discipline would enable the creation of open source units staffed with open source collectors with the appropriate
210 Open Source Information - A TN~ColIection Discipline qualifications and security clearances. hdividuals trained in cornplex searching in a wide- variety of open source resources. in source evaluation, and in effective requirements analysis would ensure that the appropriate open source information would be quickly obtained. Furthemore. this would enable analysts and intelligence officers to focus more on their work. thus increasing their productivity. It has been noted that "some analysts say they are too busy reading secret information from foreign agents to spend much time on open source^."^
A dedicated open source collection discipline would enable the analysts to direct open source collection. and to receive the results they require. rather than spending time atternpting to collect it themselves. For the intelligence officer. it has been noted that the use of open source information could Save time and resources. both in preparing for an investigation and in reducing the duplication of mounting an operation when the information already exists in open sources. The increased and systematic use of open source information by intelligence officers would thus increase their preparedness and reduce duplication of resources. This would also enable covert investigations to be more focussed in areas where they are required. Open Source Information - A True Collection Discipline
Open Source Information - lntegrated Teaming
It is crucial that intelligence services create their own interna1 open source units. and that this unit work searnlessly. as an equal partner. with both analysts and intelligence officers.
Recommendations have been made regarding the need to integrate open source collection with al1 functions of the intelligence service and in particular. that the open source unit be more closely aligned with the operational branches. The creation of an integrated tearn, including open source collection specialists and analysts would ensure the integrated use of open source information in long-term analysis branches such as the Canadian
Requirements. Analysis and Production branch. Likewise, creating a similar partnership between open source collectors and investigators would ensure open source use in activities such as Threat Assessrnents and Security Screening.
In the 198 1 report of the McDonald Commission, it was observed that an intelligence service needed a research service that was integrated with the other fknctions of the service. The formal recommendation was stronger, noting that "it is essential for an effective secunty intelligence agency to develop a strong research capacity closely integrated with its investigative acti~ities."~The Commission stressed that the research capacity needed to be infegratedwith the investigative activities, making it indispensable to the functioning of the intelligence service. This would make open source information a key player in the intelligence process. Open Source Information - A True Collection Discipline
The following year. the UNB Centre for Conflict Studies recognized in their study the necessity for a partnering between those working in open sources and those working in operations. to ensure a successfd integration of open source information within the intelligence process. The final recommendations presented by the Centre were that the open source unit should be fülly integrated into the security intelligence service, and that close working links should be encouraged between analysts and the open source operators.
In 1987. the report People and Process in Transilion noted that the open source hnction was "indispensable" to CSIS, and that this should be more than just a service. The
Independent Advisory Team that prepared this report believed that open source reference and research should be directly tied to the analysis being done at CSIS. This could be accomplished by having a closer relationship, where open source research would be integrated with operational activities.
A recommendation on how to implement an integrated tearning was presented by the
McDonald Commission. It was proposed that open source coIIection specialists, used as a mobile team of "temporary working groups," could be partnered with anaiysts and intelligence officers in the operational branches to create an al1 source team, which would work together to collect information and prepare analysis. Further to this, the 1982 study by the Centre for Conflict Studies indicated that the staff in the open source unit required
213 Open Source Information - A True Collection Discipline a securîty clearance on the same level as the analysts and investigaton, to enable them to see crucial documents. and to be apprised of al1 components.
As was proposed by the McDonald Commission. open source collectors should be partnered with analysts and investigators in the operational branches. As advocated by the
Centre for Conflict Studies. the open source specialists need to be fully cleared and integrated directly into the operational services. FinalIy, as recornrnended by the IAT tearn, a close relationship needed to be created whereby the open source fùnction would be indispensable to the analysis being done by CSIS.
The consensus is that there needs to be apartnering, whereby open source collection specialists work closely with analysts and investigators in the operational branches.
However, rather than having "temporary working groups" as was suggested, the ideal would be to have solid ongoing partnerships whereby the open source collection specialists would have active roles in both day-to-day operational activities and long-term analytical projects. The collection of information is an on-going process, and the integration of open source coIlection specialists into the various branches of the intelligence service would ensure the continuing exchange of information between the collectors on the one hand, and the analysts and investigators on the other. Integrated tearning would enable the analysts and investigators to alert the coIlector to information needs as they presented themselves, and by being on-site, the collecter could adjust the
214 Open Source Information - A True CoIlection Discipline collection methodology in response to changing requirements. In addition, by having the collection of open source information as an integral part of each function within the intelligence service, there would probably be a substantial increase in the use of open source information and a decrease in the duplication of covert collection of what was available in open source. as each side became more aware of the complete picture and what was available.
While a study would be required to ascertain how many open source collection specialists would be required to effectively tearn with what nurnber of analysts and investigators, it would seem that such an integrated teaming mode1 would be highly effective. Integrated teaming would ensure a greater use of open source information, a reduction in duplication of efforts, allow investigations to be more focussed on collecting the unique information that was unavailable elsewhere, thus allowing for a more efficient use of resources.
Furthermore, analysts and investigators could devote their time in completing their requirements. as the collecting was being done by specialists.
Conclusion
The growing availability of information in the public domain, the greater access to this information through the use of technology and the progress of global computerization, will ensure a continuing increase in access to information in open sources. The quantity of
215 Open Source Information - A Tnie Collection Discipline information will continue to grow at astonishing rates, wiîh wide-ranging levels of accuracy. reliability and usefulness. This information can be of value to an intelligence service. helping to corroborate information, to supplement existing information and to supply new information. Furthemore. publicly available information can help to avoid bias and rnirror-imaging. Open source information cm facilitate the creation of a complete picture from disparate pieces of information. In addition, open source information can protect intelligence services from disclosing operational methodology in public, can reduce the necessity for intrusive operations, and can lower the classification of an intelligence product. thus enabling a wider distribution.
Recommendations being made since the early 1980s. and exarnples such as the Research and Analysis branch of the Office of Strategic Services, show how intelligence services can benefit by recognizing the value of open source information. A true open source collection discipline should be implemented, putting the collection of open source information on the sarne IeveI as the other collection disciplines. This would allow for the creation of the necessary infrastructure to ensure that the open source collection units would be staffed by professional information collectors cIeared to the necessary levels.
To provide the greatest advantage to the intelligence process, these open source units should be integrated into both the analytical and operational branches of the intelligence service. The teaming of open source collection specialists with analysts and investigators
216 Open Source Information - A Tme Collection Discipline would ensure an extensive use of open source information. a reduction of duplication and an increase in productivity. In Canada, recommendations on the use of open source information have been made repeatedly for almost 20 years. It would seem to be time that the various suggestions on how open source information can be used be heeded, and that systems be implemented to ensure the collection of open source information and its use in the intelligence process. The creation of integrated teams, where open source colIectors are partnered with analysts and investigators, would enable the formation of solid working relationships that would make open source information a vital and integral component of the inteIIigence process.
Endno tes
1. Harold Brown and Warren Rudman, Preparingfor the 21sr Century: An Appraisal of US Intelligence, Report of the Commission on the Roles and Capabilities of the United States Intelligence Community (Washington, DC: US GPO, 1996) pp. 88-89.
2. Ibid.. p. 16.
3. Ibid., pp. 16 and B-2.
4. Ibid.. p. 15.
5. Centre for Conflict Studies, Open Sources and the Security Intelligence Function, (New Brunswick: University of New Brunswick, Centre for Conflict Studies, 1982) p. 101.
6. Abram N. Shulsky, and Gary J. Schmitt, The Future of US Intelligence: Report Prepared for the Working Groccp on Intelligence Reform, (Washington, DC: Consortium for the Study of Intelligence, 1996) p. 15. Open Source Information - A Tnie Collection Discipline
7. Ibid.. p. 14.
8. Loch K. Johnson, "Analysis For A New Age," Intelligence and Narional Securiv, Vol. 1 1. No. 4 (October 1996) p. 657.
9. Commission of Inquiry Concerning Cerlain Ac r ivit ies of rhe Royal Canadian Mounted Police (Ottawa: The Commission 198 1 ). See Second Report Vol. 1. Part V Chapter 4 p. 5 16, para. 8. Open Source Information - A True Collection Discipline
BIBLIOGRAPHY
"1 996 Golden Candle Awards Recognizes Excellence in Using Legal and Ethical Information Sources to Meet National Needs." US Newswire (3 September 1996).
"A Market Place for Intelligence.'' Intelligence Newsletter. No. 3 1 1, (15 May 1997).
"Belgrade hackers hit NATO's Web site." The Ottawa Citizen (1 April 1999).
Bennett. Rick. Personal Interview. Ottawa (17 March 2000).
Berkowitz, Bruce D. and Goodman. Allan E. Strategic Intelligence for American National Security. Princeton, NJ: Princeton University Press. 1989.
Bridis. Ted. "Internet Hacker Attack Spreads: CNN, Amazon, eBay Overloaded for Hours." http://2 16.33.107.235/news/nw/hack9-20000209.htm downloaded 2000.03.28.
Brown, Harold and Rudman, Warren. Preparing for the 21st Century: An Appraisal of US Intelligence. Report of the Commission on the Roles and Capabilities of the United States Intelligence Comrnunity. Washington, DC: US GPO. 1996.
Brown, Jason Lugh. "Open Source Information and the Intelligence Based Decision Model." ADSC Conference. Optimising Open Source Information. Canberra (7-8 October 1998).
Canada. Auditor General. "The Canadian Intelligence Cornrnunity: Control and Accountability." [Chapter 271. Annual Report 1996. Ottawa: Office of the Auditor GeneraI. 1997.
Canada. Canadian Security Intelligence Service Act. Chapter C-23. Revised Statutes of Canada.
Canada. Commission of Inquiry Concerning Certain Activities of the Royal Canadian Mounted Police. Consolidated Report. Ottawa: The Commission. 1981. [known as the McDonald Commission].
Canada. Canadian Security Intelligence Service. "Counter Terrorism." http://www.csis- scrs.gc.ca. Downloaded 2000.0 1. 30.
Canada. Canadian Security Intelligence Service. "Economic & Information Security." Open Source Information - A True Collection Discipline http://www.csis-scrs.gc.ca.Downloaded 2000.0 1.30.
Canada. Canadian Security Intelligence Service. "CSIS and the Security Intelligence Cycle." Backgrounder Series. No. 3 (January 1996). Ottawa: CSIS. 1996.
. "The CSIS Mandate." Backgrounder Series, No. I (January 1996). Ottawa: CSIS. 1996.
. Public Report 1991. Ottawa: CSIS, 1992.
. Public Report 1992. Ottawa: CSIS, 1993.
. Public Report 1993. Ottawa: CSIS, 1994.
. Public Report 1998. Ottawa: CSIS, 1995.
. Public Report 1995. Ottawa: CSIS, 1996.
. Public Report 1996. Ottawa: CSIS, 1997.
. Public Report 1997. Ottawa: CSIS, 1998.
. Public Report 1998. Ottawa: CSIS. 1999.
Canada. House of Cornmons. Special Cornmittee on the Review of the Canadian Securiiy Intelligence Service Act and the Security Ofleences Act. In Flux But Nor in Crisis. Ottawa: Supply and Services Canada. September 1990.
Canada. Senate. The Report of the Special Senate Cornmittee on Security and intelligence. Chaired by The Honourable William M. Kelly. Ottawa: Supply and Services Canada. January 1999.
Canada. Security Intelligence Review Cornrnittee. Annual Report 1985-86. Ottawa: SIRC. 1986.
. Annual Report 1986-87. Ottawa: SIRC. 1 987.
. Annual Report 1987-88. Ottawa: SIRC. 1988.
. Annual Report 1988-89. Ottawa: SIRC. 1989. Open Source Information - A Tme Collection Discipline
. Annual Report 1989-90. Ottawa: SIRC. 1990.
. Annual Report 1990-9 1. Ottawa: SIRC. 199 1.
. Annual Report 1991-92. Ottawa: SIRC. 1992.
. Annual Report 1993-93. Ottawa: SIRC. 1993.
. Annual Report 1993-94. Ottawa: SIRC. 1994.
. Anntral Report 199-1-95. Ottawa: SIRC. 1995.
. Annual Report 1995-96. Ottawa: SIRC. 1 996.
. Annual Report 1996-9 7. Ottawa: SIRC. 1997.
. Annual Report 1997-98. Ottawa: SIRC. 1998.
. Annzral Report 1998-99. Ottawa: SIRC. 1999.
Carl, Leo D. international Dictionavy ofintelligence. McLean, VA: IDCS, Inc. 1990.
. The CIA Insider 's Dictionary of US and Foreign Intelligence, Counterint elligence and Trudecrufî. Washington. DC: NIBC Press. 1996.
Centre for Conflict Studies. Open Sources and the Securiiy intelligence Funcrion. New Brunswick: University of New Brunswick, Centre for Conflict Studies. 1982.
Charters. David and Farson. Stuart and Hastedt, Glenn. eds. Intelligence Analysis and Assessment. London: Frank Cass. 1996.
"CIA [nspector General Offers Thoughts On CIA's Role, Says Open Source Intel 'Waste of Time and Money' ." Sozrrces Briejing. Vol. 1, Issue 14 (6 January 1 998).
Connors, Sean. "USPACOM J-8 Virtual Information Center." Open Source Solutions Conference. Washington, DC (May 1999).
. "Virtual Information Center (VIC) Concept Refinement Workshop: Exploring Other Enablers." OSS Pacific Conference (February 1999).
Coopers & Lybrand Consulting. "The Value of Today's Commercial Online Database Open Source Information - A True ColIection Discipline
Services." http://crossroads. krinfo.com. Downloaded 1998. C 1997 by Dialog Corp.
Dandar Jr.. Colonel Edward F. "Meeting the Open-Source Acquisition and Exploitation Challenge." Mditary Review (March-April 1997) pp. 30-39.
Dearth, Douglas H. and Goodden, R. Thomas. eds. Strategic Intelligence: Theory and Application. Washington, DC: Defense Intelligence Agency. 1995.
Denofsky. Barry A. "Continuity and Change in the Intelligence Environment." CASIS Conference. Ottawa (June 1998).
"Dubious Web sites show peds of propaganda." The Ottawa Citizen (1 ApriI 1999).
Dudgeon. Ian. "Does Covert Intelligence Have A Future?" ADSC Conference. Optimising Open Source Information. Canberra (7-8 October 1998).
Dulles, Allen. The Crafr of intelligence. Boulder, CO: Westview Press. 1963.
"Egypt: Egyptian Writer Views Intelligence Role." Cairo al-Ahram (1 5 November 1998). In FBIS. translated from Arabic.
Elcoc k. Ward P. D. Personal Interview. Ottawa ( 17 March 2000).
. "Rernarks." CASIS Conference. Ottawa (28 October 1994).
"Ever Wider Part for Open Sources." Intelligence Newsletter. No. 3 18, 1 1 (September 1997).
Farago, Ladislas. War of Wits: The .4natomy of Espionage and Intelligence. New York: Funk & Wagnalls. 1954.
Farson, Anthony Stuart. "Does InteIIigence Have A Future? Should It Be Reinvented?" Ottawa: Privy Council Office. 1997.
Friedman, Richard S. "Open Source Intelligence." Parameters. Vol. XXVIII, No. 2 (Summer 1998) pp. 129- 165. http://carlisle- www.amiy.mi 1/usawc/Pararneters/98surnmer/su-sah#Fedm. Dowloaded 1998.1 1.18.
Gannon. John C. "Managing Information in the Directorate of Intelligence." Information Technology Advanced Information Processing and Analysis Symposium. McLean Hilton Open Source Information - A True Collection Discipline
Hotel (27 March 1997). http://www.cia.gov/cia/di/speeches/42884797.h1. Downloaded 99.07.08.
Godson, Roy. ed. Intelligence Requirements for the 1990s: Collection, Analysis, Counterintelligence. and Covert Action. Lexington. MA: Lexington Books. 1989.
; May. Ernest R. and Schmitt, Gary. eds. US. Intelligence At the Crossroads. Agendas for Reform. London: Brassey's. 1995.
Goodman, Allan E.; Treverton, Gregory: and Zelikow, Philip. In From the Cofd: The Report of the Twentieth Century Fund Task Force on the Future of US Intelligence. New York: The Twentieth Century Fund Press. 1996.
Green. David. "66% of the Web is Missing: Why Do Search Engines Only Cover A Fraction of the Internet?" Dialect 3 (1999). http://1ibr~.dialog.com/newsltrs/dialect/içsue3/missing.html.
Greenberg, Maurice R. and Haass, Richard. Making Intelligence Srnarrer: The Future of Intelligence. New York: Council on Foreign Relations. 1996.
Grose, Peter. Gentleman Spy: The Life of Allen Dulles. Boston, MA: Houghton Mifflin Co. 1994.
Hedley. John H. "The Intelligence Community: 1s It Broken? How To Fix It?" Colloquium. Georgetown University, Washington, DC (30 November 1994). http://www.odci.gov/csi/studie/96unclas/hedley.htm. Downloaded 99.07.07.
Herman, MichaeI. Intelligence Power in Peace and War. Cambridge: Cambridge University Press. 1996.
Hilsman, Roger. Sfrategic Intelligence and National Decisions. Westport, CT: Greenwood Press, 198 1. Reprinted from the edition by Glencoe, ILL.: Free Press. 1956.
Holden-Rhodes, J. F. Sharing the Secrets: Open Source Intelligence and The War On Drugs. Westport, CT: Praeger. 1997.
Johnson, Loch K. "Analysis For A New Age." Intelligence and National Security. Vol. 1 1, No. 4 (October 1996) pp. 657-671.
Kent, Sherman. Strategic Intelligence for American World Policy. Princeton, NJ: Princeton University Press. 1949. Open Source Information - A True ColIection Discipline
Kievit, James and Metz, Steven. "The Internet Strategist: An Assessrnent of On-line Resources." Parameters (Surnmer 1996) pp. 130-1 57.
Laqueur, Walter. A World of Secrefs: The Uses and Limits of intelligence. New York: Basic Books. 1995.
Lee J.; and Reynolds, Richard. "CSIS Gets Name Changed By Cyber-Terrorist Hackers." CBC National ( 19 August 1 999).
Loeb. Vernon. "Spying Intelligence Data Cm Be an Open-book Test: Firm Finds a Market for Publicly AvailabIe Information." Washington Post (22 March 1999).
Lowenthal. Mark M. US Intel[igence: Evolution and Anatomy. Center for Strategic and International Studies. Washington Papers, No. 157. Second edition. Westport, CT: Praeger, 1992.
Macartney, John. htelligence: What II Is and How To Use It. Intelligence Profession Series, No. 7. McLean. VA: Association of Former Intelligence Offkers. 199 1.
Macaskill, Mark and Rufford, Nicholas. "London-based Muslim Calls for Holy War." London Times (5 September 1999).
Mathams, R. H. The Intelligence Analyst '.s Notebook. Working Paper No. 151. R. H. Matharns: Canberra. February 1988.
Maurer, Alfred C.; Tunstall, Marion D. and Keagle, James M. Intelligence: Policy and Process. Boulder: Westview Press. 1985.
McGovem, William M. Strategic Intelligence and the Shape of Tomorrow. Chicago: Henry Regnery Co. 196 1.
Nye Jr., Dean Joseph S. "Testimony." Hearing of the Commission on the RoZes and Capabilities Of the UnifedStates Intelligence Cornmunity. Washington, DC (19 January 1996). http://www. fas.org/irp/commission/testnye.htm. Downloaded 99.07.07.
Open Source Solutions. Open Source Intelligence Handbook. Washington, DC : OSS. 1996.
Osbaldeston, Gordon F. People and Process in Transition: Report to the Solicifor General. Ottawa: Solicitor General of Canada. 1987. Open Source Information - A True CoHection Discipline
Oziewicz, Estanislao. "I-iezbollah Member Helped CSIS Deportee: Provided Security Service with Evidence Group Set Up Operations Base in Canada." Globe and Mail (7 April 1997).
Pearson. Richard. "Ex-Pentagon Chief Aspin Dies After Stroke at Age 56." Washingron Post (22 May 1995).
Polmar, Norman and Allen, Thomas B. Spybook: The Encyclopedia of Espionage. New York: Random House. 1997.
Ranelagh, John. The Agency: The Rise and Decline of the CIA From Wiià Bill Donovan to William Casey. New York: Simon and Schuster. 1986.
. CIA: A History. London: BBC Books. 1992.
Rathmell, Dr. Andrew and Valeri, Lorenzo. "Implementing Open Source Intelligence: Just How Effective is the Information Revolution for Intelligence Purposes?" Jane S Intelligence Review (November 1997).
Richelson, Jeffiey T. A Century of Spies: Intelligence in the Twentieth Century. New York: Oxford University Press. 1995.
Riddle, J. Niles. "FBIS Requirements and Capabilities." Open Source Solutions Conference. Tyson's Corner, Virginia (1 -3 December 1992).
Roger, Paul. "Enhancing Traditional Criminal Intelligence Operations: Proposal For a Central Open Source Intelligence Support Concept." ADSC Conference. Optimising Open Source Information. Canberra (7-8 October 1998).
Schnittker, Lori. "Use of Open Sources in the Criminal Intelligence Prograrn of the Royal Canadian Mounted Police." Open Source Solution Conference. Washington, DC (7-9 November 1995).
Schwartz, John. "Hackers Do A Number On the CIA: Alterations Make A Mess of Agency's Home Page." Washington Post (20 September 1996).
; Cha, Ariana Eunjung; and Vise, David A. "Hackers Attack Top Web Sites For Third Day: Govement Launches Probe." Washington Post (10 February 2000).
Seabom, Blair. Intelligence and Policy: What Is Constant? Mat Is Changing? Cornmentary Series. Ottawa: CSIS. 1994. Open Source Information - A Tme Collection Discipline
Shohet, Lara. "A Report on the Relationships Between Intelligence, and Industry, and Academia." Woodrow Wilson School Policy Conference. http://www.fas.org. Downloaded 99.06.30.
Shulsky. Abram N. Silent Warfare: Understanding the World of Intelligence. Second Edition, Revised. Revised by Gary Schmitt. Washington, DC: Brassey's. 1993.
and Schmitt, Gary J. The Future of US Intdligence: Report Prepared for the Working Group on Intelligence Reform. Washington, DC: Consortium for the Study of Intelligence. 1996.
Smith, G. Davidson. "The Canadian Governrnent Security Screening Program." Commentary No. 76. Ottawa: CSIS. Fall 1999.
and Fahlman, Robert. "New Eyes on the World: Training Analysts, Their Managers, and Overseers." Journal of Conflic&Studies. Vol. XVI, No. 1 (Spring 1 996).
"So What 1s Open Source?" Horizons: Newslefter of the Cornmunity Open Source Program. Vol 1.1. (November 1996).
Soule Mason H. and Ryan, R. Paul. "Gray Literature." IT SumrnIT. Columbus, OH (10 August 1995) http://www.dtic.miI/summit/index.htm~.Downloaded 99.10.17.
Steele. Robert D. "OSS CE0 Comments on CIA Inspector General's Dismissal of Open Source Intelligence." US Newswire (7 January 1998).
. "Private Enterprise Intelligence: Its Potential Contribution to National Security." in Charters, David et al. InteiZigence Analysis and Assessrnenr. London: Frank Cass. 1996.
. Virtual Intelligence: ConfIict Avoidance and Resolution through Information Peacekeeping." Journal of Conflicf Studies. Vol. XIX, No. 1 (Spring 1999) pp. 69- 105.
Studeman, Admiral William. "Remarks." Marquette University (20 April 1995). http://www.odci.gov. Downloaded 99.07.07.
. "Teaching the Giant to Dance: Contradictions and Opportunities in Open Source within the Intelligence Community." Open Source Solutions Conference: Washington, DC. December 1992.
The Century Foundation. Our Mission. http://www.tcf.org. Downloaded 2000.03.01. Open Source Information - A Tme Collection Discipline
Troy. Thomas F. Donovan and the CIA: A History of the Establishment of the Central Intelligence Agency. Washington, DC: Aletheia Books. 1 98 1.
Tyburski, Genie. "High Hopes for Newer Search Technologies.'' http://www.llrx.com/columns/searchtech.htm downloaded 99.09.07.
United States. Central Intelligence Agency. Central Intelligence Agency. http://www.cia.gov/ic/cia.html. Downloaded 99.07.14.
. Director of Central Intelligence Annual Report For the United States Intelligence Comrnztnity. Washington, DC: CIA. May 1999. http://www.cia.gov/cia~publications/~98intellrpt/intro.hmt1.Downloaded 1999.09.09.
. Director of Central Intelligence Directive 2/12: Cornrnuniîy Open Source Program. http://www.fas.org/irp/offdocs/dcid2 12.htm. Downloaded 2000.04.02.
. Directorate of Intelligence. "Collection Requirements and Evaluation Staff." http:l/www.cia.gov/cia/di/. Downloaded 99.07.08.
. Directorate of Intelligence. "Directorate of Intelligence Organizational Components." http://www.cia.gov/cia/di/mission/components.htm Downloaded 99.07.08.
. Directorate of Intelligence. "Information Systems and Services." http://www.cia.gov/cia~di/work~iss-work-htrnl. Downloaded 99.07.08.
. Factbook on Intelligence. Fiftieth Anniversary Edition. Washington, DC: CIA. 1997.
United States. COSPO. Cornrnuniîy Open Source Strategic Plan. Washington, DC: COSPO. February 1995.
. lntelligence Cornmunity Open Source Strategic Plan 1998-2002. Washington, DC: COSPO. 1998.
United States. Foreign Broadcast Information Service. "Directory of Products and Services." Washington, DC: FBIS. July 1998.
United States. President. "Designating A Coordinator of Information." Washington, DC: The White House. 1 1 July 1941. Cited in Troy, Thomas F. Donovan and the CIA: A History of the Establishment of the Central Intelligence Agency. Washington, DC: Open Source Information - A Tme Collection Discipline
Aletheia Books. 198 1.
United States. Secretary of State. "Oral Presentation by Under Secretary of State Thomas Pickering on June 17 to The Chinese Govemrnent Regarding The Accidental Bombing of The PRC Embassy in Belgrade." (6 July 1999) http://www.fas.org. Downloaded 2000.02.27.
United States. Transportation Cornmand. Joint IntelIigence Center. Colonel J. D. Wilson. "Open Source." Open Source Solutions Conference. Washington, DC (24 May 1999).
'TJSMC C41 Commander Says Some Open Source Info Must be Weighed Carefiilly." Sources Briefing. Issue 32 (25 November 1998).
Van Creveld, Martin. "Israeli Use of Open Source Intelligence: Some Notes." ADSC Conference. Optimising Open Source Information. Canberra (7-8 October 1998).
Wallner, Paul. Persona1 Interview. Ottawa. (30 July 1999).
Wastell. Graeme. "Using Open Source Information For the Provision of Military Geographic Information." ADSC Conference. Optimising Open Source Information. Canberra (7-8 October 1 998).
Watson, Nola. "Open Source Information in Law Enforcement." ADSC Conference. Optimising Open Source information. Canberra (7-8 October 1998).
Winks, Robin W. Cloak and Gown: Scholars in the Secret War. New York: WilIiam Morrow. 1987.
Wood, Lt. Gen. C.Norman. "Intelligence Increasingly Relies on Symbiotic Relationship." Signal (October 1998). Open Source Information - A True Coliection Discipline
GLOSSARY OF ACRONYMS
ACOUSTNT Accoustic intelligence CASIS Canadian Association of Security and Intelligence Studies CIA Central Intelligence Agency cmc Commander-in-Chief COI Office of the Coordinator of Information COMINT Radio communications intelligence COSPO Community Open Source Program Office CSIS Canadian Security Intelligence Service DCI Director of Central Intelligence DI Directorate of Intelligence (CIA) ELMT Electronic signals interception intelligence FBIS Foreign Broadcast information Service FBMS Foreign Broadcast Monitoring Service FCC Federal Communications Commission FLQ Front pour la Libération du Québec HUMINT Human intelligence IDC Interdepartmental Committee for the Acquisition of Foreign Publications IMiNT Imagery intelligence JIC Trans Joint Intelligence Center Transportation Command MASINT Measurements and signature intelligence MEDINT Medical intelligence NATO North Atlantic Treaty Organization NIC National Intelligence Council NIE National Intelligence Estimate NTIS National Technical Information Service NUCINT Nuclear intelligence OSCINT Open source intelligence OS1 Open source information OSINT Open source intelligence OSIS Open Source Information System OSS Office of the Strategic Services OSU Open Source Unit PHOTNT Photographic intelligence R&A Research and Analysis RADINT Radar intelligence RAP Requirements, Analysis and Productions SIGINT Signals intelligence SIRC Security Intelligence Review Committee TECHINT Technical intelligence Open Source Information - A Tnie Cotlection Discipline
TELWT Telemetry intelligence USPACOM US Pacific Comrnand VIC Virtual Information Center