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