The_Coast_Guard_Intelligence_Program.pdf

THE COAST GUARD INTELLIGENCE PROGRAM

ENTERS THE INTELLIGENCE COMMUNITY

A CASE STUDY OF CONGRESSIONAL INFLUENCE

ON INTELLIGENCE COMMUNITY EVOLUTION

KEVIN E. WIRTH

NATIONAL DEFENSE INTELLIGENCE COLLEGE

The Coast Guard Intelligence

Program Enters the Intelligence

Community

A Case Study of Congressional Inﬂ uence on

Intelligence Community Evolution

Occasional Paper Number Sixteen

Kevin E. Wirth

LCDR, U.S. Coast Guard

NDIC PRESS

National Defense Intelligence College

Washington, DC

May 2007

The views expressed in this paper are those of the author. They do not represent

the ofﬁ cial position of the Defense Intelligence Agency, the United States Coast

Guard, the Department of Defense, the Department of Homeland Security,

or any other agency of the United States Government.

The National Defense Intelligence College supports and encourages research

that distills lessons and improves Intelligence Community capabilities

for policy-level and operational consumers

The Coast Guard Intelligence Program Enters the Intelligence Community:

A Case Study of Congressional Inﬂ uence on Intelligence Community Evolution,

Kevin E. Wirth

This series of Occasional Papers presents the work of faculty, students, and others whose

research on intelligence issues is supported or otherwise encouraged by the National

Defense Intelligence College. Occasional Papers are distributed to Department of

Defense schools and to the Intelligence Community, and unclassiﬁ ed papers are

available to the public through the National Technical Information Service ( www.ntis.

gov ). Selected papers are also available through the U.S. Government Printing Ofﬁ ce

( www.gpo.gov ).

This work builds on earlier publications in this series, particularly Occasional Paper

Number Nine, The Creation of the National Imagery and Mapping Agency: Congress’s

Role as Overseer, by Anne Daugherty Miles. The author of the present paper has

examined how the Coast Guard became a member of the Intelligence Community,

how Congress was involved, and how Congress will likely be increasingly involved

in the organization of the Community. Derived from a thesis completed in 2003, this

paper illustrates the importance of gathering electronic data immediately, since much

of the reference material on which this study is based existed only as informal e-mail

or documents stored on computers. Much of it likely would have been erased had the

research started even a year later.

Proposed manuscripts for these papers are submitted for consideration to the NDIC

Press Editorial Board. Papers undergo review by senior ofﬁ cials in Defense,

Intelligence, and civilian academic or business communities. Manuscripts or requests

for additional copies of Occasional Papers should be addressed to Defense Intelligence

Agency, National Defense Intelligence College, MC-X, Bolling AFB, Washington,

DC 20340-5100.

This publication has been approved for unrestricted distribution by the Ofﬁ ce of

Security Review, Department of Defense.

James E. Lightfoot, Editor and Associate Director

Center for Strategic Intelligence Research

James.lightfoot@dia.mil

TABLE OF CONTENTS

List of Figures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v

Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii

Selected Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix

A Seat at the Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

The Research Question . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Deﬁ nitions and Scope . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Plan of the Study . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Congressional Oversight and Evolution of

Community Membership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Intelligence Committees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Congressional Oversight of the Intelligence Community . . . . . . . . . . . . . . 11

Speciﬁ c Congressional Inquiry Committees . . . . . . . . . . . . . . . . . . . . . . . 13

Origins of IC Membership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Community? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

How the CGIP Entered the IC . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

How can the HPSCI help? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

A Watershed Meeting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36

A Late Legislative Issue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

Initial Reaction to the Concept of IC Membership . . . . . . . . . . . . . . . . . . . 41

The Booz Allen & Hamilton (BAH) Study . . . . . . . . . . . . . . . . . . . . . . . . . . 42

Impact of Other Studies and Events . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48

BAH Study Findings and Endorsements . . . . . . . . . . . . . . . . . . . . . . . . . . . 51

Actions to Strengthen Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

Tragic Catalyst . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60

The Fight before Conference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

Frances Townsend . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67

Conference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70

Initial Impact of Membership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71

Congress Leads Reform of the IC . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Oversight or Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Recommendations for Additional Research . . . . . . . . . . . . . . . . . . . . . . . . 86

Checks and Balances, Leading and Following . . . . . . . . . . . . . . . . . . . . . . 87

Appendixes

A. 5 February 1999 Letter from Rep Porter Goss, HPSCI chairman to

Admiral James Loy, Commandant USCG . . . . . . . . . . . . . . . . . . . . . . . 84

B. 28 November 2000 Letter from Mortimer Downey,

Deputy Secretary of Transportation to General Michael Hayden,

Director of NSA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91

C. DRAFT Letter from Norman Mineta, Secretary of Transportation

to Rep Porter Goss, HPSCI chairman, no date. . . . . . . . . . . . . . . . . . . . 93

D. 4 December 2001 Coast Guard Intelligence Program “Bullets” for

the Senate Select Committee on Intelligence Staff . . . . . . . . . . . . . . . . 95

Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97

About the Author . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109

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