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94TH CONQRESS> SESATE

REPORT2d Session so. 94765

FOREIGN ND MILITARYINTELLIGENCEBOOK I

FINAL R,EPORTOF THE

SELECT COMMITTEETO STIDY GOVERNMENTAL OPERATIONS

WITH RESPECT TOINTELLIGEKCE ACTIVITIES

UNITED STATES SENATETOGETHER WITH

ADDITIONAL, SUPPLEMENTAL, AND SEPARATEVIEWS

.\PRIL 26 (legislative day, APRIL 14)) 1976

U.S. GOVERNMENT PRINTING OFFICE69433 0 WASHINGTON : 1976

For sale by the Superintendent of Docume nts, U.S. Government Printing OfficeWashington, D.C. 20402 Price $5.35

Stock No.052-071-00470-O


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SENATE SELECT COMMITTEE TO STUDY GOVERNMENTAL OPERATIONSWITH RESPECT TO INTELLIGENCE ACTIVITIES

FRANK CHURCH, Idaho, ChairmanJOHN G. TOWER, Texas, Vice Chairman

PHILIP A. HAR T, Michigan HOWARD H. BAKER, JR., TennesseeWSLTER F. MONDALE, Minnesota BARRY GOLDWATER , ArizonaWALYT ER D. HUDDLESTON, Kentucky CHARLES McC. MAT HIAS , JR., MarylandROBE RT MORGAN. North Carolina RICHARD S. SCHWEIKER, PennsylvaniaGARY HAR T, Colorado

WILLIAX G. MILLER, Stafl DirectorFBEDERICK A. 0. SCHWARZ, Jr., Chief CounselCURTIS R. SYO THE RS, Counsel to the hfinoritu

AUDREY HATRY. Clerk of the Committee(II)


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LETTER OF TRANSMITTAL(By Senator Frank Church, Chairman of the Senate Select Committee

to Study Governmental Operations With Respect to IntelligenceActivities)On January 27, 1975, the Senate established a Select Committee toconduct an investigation and study of the intelligence activities of theUnited States. After 15 months of intensive work, I am pleased tosubmit to the Senate this volume of the Final Report of the Com-mittee relating to foreign and military intelligence. The inquiry arisesout of allegations of abuse and improper activities by the intelligence

agencies of the United States, and great public concern that theCongress take action to bring the intelligence agencies under theconstitutional framework.The members of the Select Committee have worked diligently andin remarkable harmony. I want to express my gratitude to the ViceChairman, Senator John Tower of Texas, for his cooperation through-out and the able assistance he has given me in directing this mostdifficult task. While every member of the Committee has made im-portant contributions, I especially want to thank Senator Walter D.Huddleston of Kentucky for the work he has done as Chairman ofthe Foreign and Military Subcommit.tee. His direction of the Sub-committee, working with Senator Charles McC. Mathias of Mary-land, Senator Gary Hart of Colorado and Senator Barry.Goldwaterof Arizona, has been of immeasurable help to me in bringing thisenormous undertaking to a useful and responsible conclusion.Finally, I wish to t.hank the staff for the great service they haveperformed for the Committee and for the Senate in assisting themembers of the Committee to carry. out the mandate levied by SenateResolution 21. The quality, integrity and devotion of the staff hascontributed in a significant way to the important analyses, findingsand recommendations of the Committee.The volume which follows, the Report on the Foreign and MilitaryIntelligence Activities of the United States, is intended to provide tothe Senate the basic information about the intelligence agencies ofthe United States required to make the necessary judgments concern-ing the role such agencies should play in the future. Despite securityconsiderations which have limited what can responsibly be printed forpublic release the information which is presented in this report is areasonably complete picture of the intelligence activities under-taken by the United States, and the problems that such activities posefor constitutional government.The Findings and Recommendations contained at the end of thisvolume constitute an agenda for action which, if adopted, would goa long way toward preventing the abuses that have occurred in thepast from occurring again, and would assure that t.he intelligenceactivities of the United States will be conducted in accordance withconstitutional processes.

FRANK CHURCH.(III)


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NOTEThe Committees Final Report has been reviewed and declassi-fied by the ap ropriate executive agencies. These agencies submittedcomments to tR e Committee on security and factual aspects of each

chapter. On the basis of these comments, the Committee and staffconferred with representatives of the agencies to determine whichparts of the report should remain classified to protect sensitive intel-ligence sources and methods.,4t the request of the agencies, the Committee deleted three chaptersfrom this report : Cover, Espionage, and Budgetary Oversight.In addition, two sections of the chapter Covert Action of the CIAand one section of the chapter Department of State have been de-leted at the request of the agencies. Particular passages which werechanged at the request of the agencies are denoted by italics and afootnote. Complete versions of deleted or abridged materials are a,vail-able to Members of the Senate in the Committees classified reportunder the provisions of S. Res. 21 and the Standing Rules of theSenate.Names of individuals were deleted when, in the Committees judg-ment, disclosure of their identities would either endanger their safetyor constitute a substantial invasion of privacy. Consequently, footnotecitations to testimony and documents occasionally contain only descrip-tions of an individuals position.Appendix Three, Soviet Intelligence Collection and Intelligenceagainst the United States,? is derived solely from a classified CIAreport on the same subject which was edited for security considerationsby the Select Committee staff.

(W


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CONTENTS

I. INTRODUCTION---_._______________________~~-~-~-~---~~~~~~A. The Mandate of the Committees Inquiry- ________________B. The Purpose of the Committees Findings and Recommenda-tions----_______---------~---------------------------C. The Focus and Scope of the Committees Inquiry and Ob-stacles Encountered----_-- _______________________ -___-D. The Historical Context of the Inquiry --___________________E. The Dilemma of Secrecy and Open Constitutional Govern-ment-----------------------------------------------II. THE FOREIGN AND MILITARY INTELLIGENCE OPERA-TIONS OF THE UNITED STATES:.AN OVERVIEW __________A. The Basic Issues: Secrecy and Democracy- _ _ _ _ _ - - _ _ _ _ _ - _ _ _ _B. The Scope of the Select Committee Inquiry into Foreign andC. Military Intelligence Operations- __ _ _________ ______ -_ ___The Intelligence Process: Theory and Reality _______ ______ _ _D. Evolution d the United States Intelligence Community- _ _ _ _ _E. The Origins cf the Postwar Intelligence Community.. _ _ _ _ - - _ _F.G. The Response to the Soviet Threat-- _ __ ___ ___ ______ __ ___ -_Korea: The Turning Point_ __ __ _-_ __ _ __ _ __ ___ ___ _____ -_ __H. The Protracted Conflict- - _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ - _I. Third World Competition and Nuclear Crisis- _ _ _ _ _ _ _ _ _ _ _ - - -J. Technology and Tragedy- _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ - _ _K. The197Os____.~------~----------~-~~~---------------_-_L. TheTaskAhead---~------------------~-----------------III. THE CONSTITUTIONAL FRAMEWORK FOR INTELLI-GENCE ACTIVITIES______________________________--------A. The Joint Responsibilities of the Legislative and ExecutiveB. Branches-Separation of Powers and Checks and Balances--The Historical Practice-_ _ _ _ _ _ _ - - _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ - _ _ _ _ - _C. The Constitutional Power of Congress to Regulate the Con-duct of Foreign Intelligence Activity _____ _ __________ _____IV. THE PRESIDENTS OFFICE ____ -_-_- _______________ ------_-_A. The National Security Council ______ - _____ ________ --___-_ -B. AuthorizationandControlof CovertActivities--_-----------C.D. Providing the Intelligence Required by Policymakers- - - _ _ _ _ -E. Advising the President on Intelligence Issues ____ - _____ - ____ -Allocating Intellipence Resources- _ _ _______________ ______ _V. THE DIRECTOR OF CENTRAL INTELLIGENCE ___________A.B. The Producer of National Intelligence- _ - _- ______ _________ -Coordinator of Intelligence Activities-_. . _ _ _ _ _ _ _ _ _ _ _ _ _ . _ _ _ _C. Director of the CIA _______. ----------------_-__--------VI. HISTORY OF THE CENTRAL INTELLIGENCE AGENCY_-A. The Central Intelligence Group and the Central IntelligenceAgency:1946-1952________________________-----------B. TheDullesEra:1953-1961__------_--_--- ______ -___--_-_-C. Change and Routinieation: 1961-1970- _ -_- -- ___ ___ ___ -_ _ -_D. TheRecentPast:1971-1975_----------_--_----_-----_-__E. Conclusion_-_._.________________________--------------VII. THE CENTRAL INTELLIGENCE AGENCY: STATUTORYAUTHORITY---------______________________~~---~--~--~--A. Clandestine Collection of Intelligence- ___- ________________B. CovertAction____----_----_____________________~.-.----C. Domestic Activities- - - - - _ _ - . _. _ _ _ _ _ _ _ _ _ _ _ _ _. _ _ _ _ _ _ _ _ _ _ _ _

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VIVIII. COVERT ACTION ___________ - ____ -__----__--- ____ ---- ______A. Evolution of Covert Action ______ -__--__-- ______ --- ______B. CongressionalOversight---- _______ --___-- ____ --- ________C. Findings and Conclusions _____ -___--_-__--_-__-_-- _______IX. COUNTERINTELLIGENCE _______ --_--__-___-- ______ -- ______A. Counterintelligence: An Introduction _____ - - _ _ _ _ - _ _ _ _ _ _ _ - _ _B. Current Issues in Counterintelligence- _ - _ _ _ ___ __ _ ____ - _ ___C. Conclusions___-_---------------------------------------X. THE DOMESTIC IMPACT OF FOREIGN CLANDESTINEOPERATIONS: THE CIA AND ACADEMIC INSTITUTIONS,THE MEDIA, AND RELIGIOUS INSTITUTIONS _____ -- ____A. Covert Use of Academic and Voluntary Organizations---- _ _ _B. Covert Relationships with the United States Media----- _ - - -C. Covert Use of U.S. Religious Groups- _ _ _ - _ _ _ _ _ _ _ _ _ _ - - _ _ _ _XI. PROPRIETARIES----- ________ ---__--__--- ____ -- _____ - ____ --A. Overview_---------------------------------------------B. Structure___-------------------------------------------C. Operationof Proprietaries-- _____ -___-- ____ -- ________ ----

D. The Disposal of Proprietaries- ____ - ______________________E. FinancialAspects-- _____ --- ____ -___- ____ -- _______-__---_F. Some General Considerations- - _ _ _ _ _ - _ _ _ - _ _ _ _ _ _ _ _ _ _ _ _ _ _ __XII. CIA PRODUCTION OF FINISHED INTELLIGENCE_ - _ - _ _ _ _ _A. Evolution of the CIAs Intelligence Directorate ____________B. The Intelligence Directorate Today- _ _ _ _ - _ - _ _ _ - - _ _ _ _ - _ _ _ _C. The Relationship Between Intelligence and Policy- _ _ _ _ _ _ _ _D. The Limits of Intelligence _____ _________ __- ____ _-_ __ --__ _E. The Personnel System ________ --___- _________ -- ____ - ____F. Recruitment and Training of Analysts------ _ _______ _ _ __ _ _G. The Intelligence Culture and Analytical Bias-------------H. The Nature of the Production Process: Consensus VersusCompetition- _____ -___-___-- ___________________ - _____I. The Current Events Syndrome- _ _ - _ _ _ _ - - - - _ _ _ - _ _ - _ _ _ _ _J. Innovation_____-_-------------------------------------K. Overload on Analysts and Consumers - - _ _ - - _ _ _ _ - _ _ _ _ _ _ _ _ _ _L. Quality Control _____ -__--__----_- ______________________M. Consumer Guidance and Evaluation _________________.____N. The Congressional Role ____ - ____ -_--_-___--___--___- ____XIII. THE CIAs INTERNAL CONTROLS: THE INSPECTOR GEN-ERAL AND THE OFFICE OF GENERAL COUNSEL_--..-A. The GeneralCounsel- ____ ---__--___- ____ -- ____ - _________B. The Office of the Inspector General ____ -_ _____ _______ -__ _ _C. Internal and External Review of the Office of the InspectorGeneral______---.-----------------------------------XIV. THE DEPARTMENT OF STATE---- ____ - _____ -__--___- _____A. Origins of the State Department Intelligence Function- _ _ - - -B. Commandand Control _______ --__-_-___-- ________ - ______C. Support Communications _______ - ____________________----D. Production of Intelligence.. _ ___- ________________--_______XV. DEPARTMENT OF DEFENSE ______ - _____ -___--___-___- _____A. Objectives and Organization of the Defense Intelligence Com-munity___-_------------------------------.----------B. The Defense Intelligence Budget- _ _ _ _ _ - - _ - __ - -.- _ _ _ _ _ _ _ _ _ -C. Management Problems of the Defense Intelhgence Com-munity___-_-----------------------------------------D. Agencies and Activities of Special Interest-- __ ____ _ -- __ ___ -

E. Military Counterintelligence and Investigative Agencies- __ _F. Chemical and Biological Activities ________________________G. Meeting Future Needs in Defense Intelligence-- _ _ ______._.

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VIIXVI. DISCLOSURE OF BUDGET INFORMATION ON THE IN- 7TELLIGENCE COMMUNITY_-------------~-----~~~~~~A. The Present Budgetary Process for Intelligence CommunityAgencies and Its Consequences--_----------------------B. The Constitutional Requirement___-----_-_-_---_----__._C. Alternatives to Concealing Intelligence Budgets from Congress

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Budget Disciosure-_---_-_---~-~~-~~--~-~--~~--~------E. The Argument that Publication of Any Information willInevitably Result in Demands for Further Information- - -F. The Argument that the United States Should Not PublishInformation on Its Intelligence Budget Because No OtherGovernment in the World Does------------------~-~~~~G. Summary and Conclusion_--------------------------.---XVII. TESTING AND USE OF CHEMICAL AND BIOLOGICALAGENTS BY THE INTELLIGENCE COMMUNITY-:-.._A. The Programs Investigated------------------------~-.~~~B. CIA Drug Testing Programs-------------_---------______C. Covert Testing on Human Subjects by Military IntelligenceGroups----___-_-_---____________________------------D. Cooperation and Competition Among the Intelligence Agen-cies, and Between the Agencies and Other Individuals andInstitutions~----------~------~------~-~-~--------~~~~XVIII. SUMMARY: FINDINGS AND RECOMMENDATIONS-----A.B.:.E:F.

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Introduction____________________________-----.---------General Findings ____ ------- _______________________ ---_The 1947 National Security Act and Related Legislation_-..-The National Security Council and the Office of the President.The Director of Central Intelligence---. _ _. __ __ __ __ _ ___ _- -The Central Intelligence Agency ______-______.___________Reorganization of the Intelligence Community___-----__-_-CIA Relations with United States Institutions and Private

I.ItI?N:0.P.

Citizens---_______---~-----~.--------~---~-~---------Proprietaries and Cover--- - - - _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ - -Intelligence Liaison-- _____ --- _____________ --__---- _____ -The General Counsel and the Inspector General- _ _ _ _ _ _ _ - _ _The Department of Defense- __ __ _ ___ _ ___ _ __ _ _. _ ___ _ _- - _ -The Department of State and Ambassadors- _ _ - __ _ ___ _ - - _ -Oversight and the Intelligence Budget- __________________ -Chemical and Biological Agents and the Intelligence Com-rnunity__________________________________--~-----~--.- .tieneral Recommendations- _ _ __ _ ___ _ __ _ _ __ _ ___ ___ ___ _ __ -APPENDIX I: Congressional Authorization for the Central IntelligenceAgency to Conduct Covert Action--- -_ _ ___ ___ _ __ _ __ _ _ ___ __ __ __ _ -_-A. The National Security Act of 1947 ___-________._________ -_B. The CIA Act of 1949----_- _______._______________ ----__C. The Provision of Funds to the CIA by Congress __.__ __ _ _- -_D. The Holtzman and Abourezk Amendments of 1974- - - - - - - _ _E. The Hughes-Rvan Amendment ___________________ --_-----F. Conclus~n_---~-________________________-----------~---APPENDIX II: Additional Covert Action Recommendations---- _ _ _ _ _ _ _A. Statement of Clark M. Clifford ____ ________ _ ___ __ __ _____ -_B. Statement of CyrusVance~~~~~~~~_~_~~~~-~~~~~-~~~~~~~~_C. Statement of David A. Phillips ___________________________D. Prepared Statement of Morton H. Halperin _.______________

E. Recommendations of the Harvard University Institute ofPolitics, Study Group on Intelligence Activities _ _ _ _ _ _ _ _ _ _F. Recommendations of the House Select Committee on Intelli-gence Concerning Covert Action ____. __ __ _ __ ___ :- __ __ _- -G. Article from Foreign Affairs by Harry Rositzke: AmericasSecret Operations: A Perspective_______--______________H. Article from Saturday Review bv Tom Braden: Whats Wrongwith the CIA?---: _________ - _________________________ rI. Recommendations of the Commission on the Organization ofthe Government for the Conduct of Foreign Policy (theMurphy Commission) Concerning Covert Action- _ _ _ _ _ _ _ _

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VIIIAPPENDIX III: Soviet Intelligence Collection and Operations Againstthe United States______-___-_______________________-------------A. Introduction________---------_--------------------------B. Organization and Structure_---_---___----------.--------C. The GRU__-__---______--_____________________~------~D. The Scope and Methods of Anti-United States Operations bythe KGB and the GRU--__--___-___-___-___________-_E. Eastern European Security and Intell igence Services- - _ _ _ - _ _ADDITIONAL VIEWS OF SENATOR FRANK CHURCH------__-ADDITIONAL VIEWS OF SENATORS WALTER F. MONDALE,GARY HART, AND PHILIP HART_--- _____________________INTRODUCTION TO SEPARATE VIEWS OF SENATORS JOHNG. TOWER, HOWARD H. BAKER, JR. AND BARRY M.GOLDWATER______-___----~-----~----~~-----------~--------SEPARATE VIEWS OF SENATOR JOHN G. TOWER ____________INDIVIDUAL VIEWS OF SENATOR BARRY GOLDWATER--w.--SEPARATE VIEWS OF HOWARD H. BAKER, JR _______________SUPPLEMENTAL VIEWS OF SENATOR CHARLES McC.MATHIAS, JR--_--__--____-____-~---------------------------ADDITIONAL VIEWS OF SENATOR RICHARD S. SCHWEIKER..GLOSSARY OF SELECTED INTELLIGENCE TERMS AND LISTOF ABBREVIATIONS_---_______________________----~------~-NATIONAL INTELLIGENCE CHARTS- __ - -_ _ --__- - c___ ___- __ __ _SENATE RESOLUTION 21__________________----~----~----------STAFF LIST_____---___-__---~-----~-------~-------~-------------

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