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NATIONAL RECONNAISSANCE OFFICE MISIMMINPM

WASHINGTON. O.C.

OF

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ICE OF THE DIRECTOR March 9, 1973 •

: MEMORANDUM FOR THE SECRETARY OF DEFENSE

SUBJECT: NRO Charter and NSCID

/ The proposed National Security Council Intelligence •

Directive for:the National Reconnaissance Program, given to

you by Dr. Schlesinger, represents a departure from the

existing management structure in several important respects.

I have looked at the NSCID in depth, considered the impact of

the changesiupon the Program, and redrafted the paper for your

consideration (Tab A). Included are Dr. Schlesinger's draft

(Tab B), the President's letter of November 5, 1971, "Organization and Management of the U.S. Foreign Intelligence Community"

(Tab C) and the "Agreement for Reorganization of the National

Reconnaissance Office," 11 August 1965 (Tab D).

Since August 1965 the National Reconnaissance Office (NRD)

has operated under an agreement between DoD and CIA. This

agreement on the National Reconnaissance Program (NRP) was

arrived at after several earlier attempts to evolve a satisfactory modus operandi in an area where both CIA and DoD

(principally Air Force) had ongoing and to some extent competitive . efforts. The 1965 agreement has served us well in that

- . DoD/CIA relations have been smooth and systems have been

conceived, built and operated with a high degree of success.

Recently several factors have called into question the

adeqdacy of the current agreement. Both the U.S. Intelligence

Board and the National Security Agency operate under NSCIDs.

The NSA NSCID (NSCID-6) of recent date (17 February 1972) is

. felt by some to take precedence in part over the DoD/CIA

agreement on the NRP of tl August 1965. Whereas the NSCID-6

calls for joint NSA and :4R0 tasking of SIGINT satellites, the

DoD/CIA agreement states that NRO is responsible for "development, management, control and operation" of satellites. A

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restatement of NRO responsibility for operation of its systems

is in order. While we have been able to arrive at ad hoc

arrangements with NSA for system operations, our lot would be

improved if we were negotiating with them as another "national"

organization with a similar charter.

Of perhaps more importance, the presidential directive

of November 5, 1971 gives to the DCI certain responsibilities

for control of . resources to Be allocated to intelligence, and

directs that DCI chair various committees and boards related

to intelligence. While it does not specifically state that the

DCI should chair the Executive Committee of the NRO, it certainly is within the implied intent of the directive.

The November 5 document also directs the "retention of the

present management structure of the NRO." The assumption at

the time of writing the November 5, 1971 document was that

since NRO,was operating well, it should be continued in its

present form.

In my view, if the external environment were unchanged,

there would be no reason to change the charter of the NRO.

But because of the changed circumstances cited above, some

account should be taken of these changes. And while we are

about it, I believe it is desirable to eliminate some provisions

of the old agreement which are no longer necessary. Dr. Hall

has proposed that the DCI become chairman of the ExCom, but

that the 1965 agreement be maintained. Dr. Schlesinger feels

that an NSCID should be written covering NRO operations.

I have found that the draft encompasses a considerably

different working arrangement than what I feel is desirable.

Since the new draft proposes more far-reaching changes than

I feel are appropriate, I discussed the subject with Dr. Schlesinger. He has stated that he concurs in maintaining NRO

operations essentially as presently constituted. Dr. Schlesinger

wants to become Chairman of ExCom but he has said that he has

no intention of getting involved in the day-to-day operations

of our program. Specifically he told me that he wants to

redraw the NRO charter to be more in consonance with the

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Presidential letter of November 5, 1971, with the operational

end of NRO business to continue as before. Re further stated

that NRO operations had been first-class and he did not want

to upset a good thing..

I have also reviewed the situation with the Secretary of

. the Air Force and the Chief of Staff. We three feel strongly

that whatever changes are made in the superstructure of the

NRO, the Director (DNRO) should be an Air Force official, and

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the principal support for the program should continue to be

provided by the Air Force Systems Command and other components

of the Air Force.

I personally believe that the Under Secretary of the Air

Force is in the best position to be DNRO. I am the third

Under Secretary to be DNRO; on one occasion the DNRO was an

Air Force Assistant Secretary for R&D. In my opinion, this

latter arrangement was sufficiently less effective that it

should not be considered as an attractive alternative. If

the NSCID directs that the Under Secretary of the Air Force

be DNRO, a waiver could of course be obtained from NSC if

there were compelling reasons to do so. The DNRO needs the

"clout" of the Under Secretary position to expedite NRO matters

and prevent this essential program from becoming bogged down

in Pentagon routine.

In redrafting the NSCID I have altered it so that it

represents a much less drastic change in management and

operations of the NRP than does Dr. Schlesinger's draft. Yet

the redraft attempts to satisfy Dr. Schlesinger's needs in

operating under the President's November 5, 1971 directive.

The important differences are:

a. A restatement of the Executive Committee membership to require that a Deputy Secretary of Defense be the DoD

member. The authority which accompanies this position has been

vital to the ability of the NRO to accomplish its mission; so

much so that I believe we need to specify him as the DoD

member.

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The identification of the Under Secretary of the

Air Force as the Director of the NRO for the reasons stated

above.

Addition of a requirement for a Deputy Director

of the NRO, to be an employee of the CIA. Since CIA people

and assets are an integral part of the Program, and since we

currently operate under this_ arrangement, it seems worth

while to continue the practice.

d. The redraft also includes a repackaging to incorporate the Annex in the basic document and an editing out of

some provisions which were based on conditions in 1965 which

are no longer considered needed.

If we can reach agreement with the DCI along lines similar

to my proposed draft, then I believe having an NSCID is a step

forward. If we find we cannot eliminate those provisions of

the CIA draft which turn over effective control of the program

to the DCI, then I would agree with Dr. Hall that we would be

much better off to keep the existing agreement of 1965 and

merely have Dr. Schlesinger appointed as ExCom Chairman. I

believe that one or two sessions with Dr. Schlesinger and

his staff will result in an agreement on all essential points.

John L. McLucas

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NATIONAL SECURITY COUNCIL

INTELLIGENCE DIRECTIVE NO.

THE NATIONAL RECONNAISSANCE PROGRAM

Satellite and other special reconnaissance of foreign

activities is a national responsibility, and must be so organized

and managed as to satisfy the intelligence requirements of the

National Security Council and the departments and agencies of

the Government.

Pursuant to the National Security Act of . 1947, as

amended, the National Security Council authorizes and directs

the establishment of a National Reconnaissance Program, to be

managed as prescribed herein. The National Reconnaissance

Program has been operating under the Department of Defense/

Central Intelligence Agency agreement of August 1965. This

directive recognizes, updates, and takes precedence over that

,. •

agreement.

a. The National Reconnaissance Program is hereby

established as a single, national program for the development

and operation of:

(1) Satellite and airborne systems whose primary

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mission is the collection of intelligence in response to.national •

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requirements established by the Director of Central Intelligence

with the advice of the United States Intelligence Board.

(2) Satellite and airborne systems whose primary

mission is to collect intelligence in support of the operational

requirements of the military_ departments, approved by the

Director of Central Intelligence with the advice of the United

States Intelligence Board, but whose characteristics are such

that they should be managed within the NRP.

b. Overall funding guidance for the National

Reconnaissance Program will be provided by the Director of

Central Intelligence. Funds for this Program will be programmed within the Executive Branch and presented to the

appropriate committees of Congress under the title: National

Reconnaissance Program. These funds will be programmed,

•

managed, and accounted for separately. from those of the.

Department of. Defense and the Central Intelligence Agency,

even though for security purposes the funds may be disbursed

in the public budgets under other identifications.

c. The National Reconnaissance Program will be

supervised by an Executive Committee whose membership will

consist of the Director of Central Intelligence as the

Chairman and of a Deputy Secretary of Defense.

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d. The National Reconnaissance Program shall be

responsive directly and solely to the intelligence collection

requirements and collection priorities establiihed by the

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I !Director of Central Intelligence, with the advice of the

: United States Intelligence Ward.

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Targeting requirements and priorities for both

satellite and aerodynamic vehicles shall be the responsibility

of the Director of Central Intelligence, subject to the opera-

:

tional apKoval of the 40 Committee.

The Director of Central Intelligence shall provide

security policy guidance for the protection of sensitive

National Reconnaissance Program activities.

3. a. The National Reconnaissance Office is established

as a sepaiate office. The Under Secretary of the Air Force

shall be the Director of the National Reconnaissance Office.

The Director shall be recommended jointly by the Secretary of

Defense and the Director of Central Intelligence, subject to

the approval of the President.

b. A Deputy Director will be selected jointly by the

Secretary of Defense and the Director of Central Intelligence.

The Deputy Director will be an employee of the Central

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Intelligence Agency Agency and shall serve full time in a line position

under the Director of the National Reconnaissance Office.

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.c. The National Reconnaissance Program will be

implemented through operating activities in the Department

of Defense and in the Central Intelligence Agency.

d. The National Reconnaissance Office will be

staffed by personnel drawn from the Department of Defense,

the Central Intelligence Agency, and other Government agencies.

The National Reconnaissance Office Staff will report to and

be responsive to the Director.

4. The Executive Committee will:

Review and approve the National Reconnaissance

Program and budget.

Approve the allocation of responsibilities and

corresponding funds for research, development, and system

— operation.

Establish guidelines for collaboration between.

the various agencies and departments of the Government in

matters related to the NRP and for appropriate mutual support.

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Meet on the call of either member.

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will:

Have sole responsibility and authority for the

management and operational control of all projects of the

National Reconnaissance Program,- subject to the direction and

guidance of the Executive Committee. Re shall report to a

Deputy Secretary of Defense.

Keep the Executive Committee fully informed on

all aspeCts of the Program.

Prepare the Program and budget and present them

to the Executive Committee for approval.

Defend the Program and this budget to the Congress.

Directly control and account for all funds

expended in support of the Program.

Sit with the United States Intelligence Board

and the Intelligence Resources Advisory Committee for matters

affecting the NRP.

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NATIONAL SECURITY COUNCIL

INTELLIGENCE DIRECTIVE KO..

THE NATIONAL RECONNAISSANCE PROGRAM

1. Satellite and other special reconnaissance of foreign

..

activities is a national responsibility, and must be so organized and

managed as to aggressively and imaginatively exploit to the maximum,

technology, operational resources, and facilities of the government to

satisfy the intelligence requirements of the National Security Council

and of the several departments and agencies of the government.

Therefore, in the interest of national security and pursuant

to the National Security Act of 1947, as amended, the National Security .

Council authorizes and directs the establishment of a National Reconnaissance

Program to be managed as prescribed herein. This directive supersedes the

'Agreement for Reorganization of the National Reconnaissance Program"

dated 11 August 1965.

2. a. The National Reconnaissance Program is hereby established as

a single national program for the development and operation of the

•

intelligence collection activities and systems listed in Annex A.

b. Funds for this Program will be programmed within the

Executive Branch and presented to Congress under the title: National.

Reconnaissance Program. These funds will be programmed, managed and

accounted for separately from those of the DOD and CIA, even though for

security purposes the funds may be dispersed in the public budgets under

another identification.

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c. The National Reconnaissance Program will be supervised by an

Executive Committee whose membership will consist of the Director of f

Central Intelligence as Chairman, and a representative of the Secretary of

Defense. The Director, NSA, Director, DIA, DO/SU/CIA and others may be

advisors to the Committee as appropriate.

- d. The National Reconnaissance Program shall be responsive

directly and solely to the intelligence collection requirements and

collection priorities established by the Director of Central Intelligence,

with the advice of the United States Intelligence Board.

Mission initiation, targeting requirements, priorities, and

frequency of coverage of denied areas by both satellite and aerodynamic

vehicles shall be the responsibility of the Director of Central Intelligence,.

subject to the operational approval of the 40 Committee.

The Director of Central Intelligence will provide security

policy guidance for..the protection of sensitive National Reconnaissance

Program activities.

3. a. The National Reconnaissance Office is established as a separate

office and its Director is responsible for directing the National Reconnaissance Program. The National Reconnaissance Office will be located at •

gk.

whatever facility is mutually agreed upon by the Secretary of Defense and

the Director of Central Intelligence to be consistent with efficient conduct

of its operations and appropriate for desirable security and cover.

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The Director of the National Reconnaissance Office will be

under the supervision of the Director of Central Intelligence acting on

II behalf of the Executive Cormittee. The DireCtor of the National

Reconnaissance Office will be selected Jointly by the Secretary of Defense

and the Director of Central Intelligence.

The National Reconnaissance Office will implement the Program

1 as assigned, through operating activities in the Department of Defense and

in the CIA. The Secretary of Defense and the Director of Central

Intelligence will establish separate units within their representative

organizations as deemed necessary by the Executive Committee for the

research and development, procurement and operation of assigiéd portions of

the National Reconnaissance Program under the direct control of the Director,

National Reconnaissance Office. In addition, they will provide such other

support to the National Reconnaissance Program as may be required for

.10

efficient operation.

d. The National Reconnaissance OffiCe will be staffed by personnel

1 - drawn from the Department of Defense, the Central Intelligence Agency, and

other government agencies. The National Reconnaissance Office staff will

i;

'repOrt.to and be responsive to the Director of the National Reconnaissatici

Office.

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CC isr:POL SY (rent' 
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The Executive Committee will:

Review the National Reconnaissance Program content, balance •

and responsiveness and its budget.

Review the allocation of responsibilities and the corresponding

funds for research, development and operation of new systems. Funds shall

be adequate to ensure that a vigorous research and exploratory development

effort is achieved and maintained by the Department of Defense and the

Central Intelligence Agency to design and construct new sensors responsive

to intelligence requirements specified by the Director of Central

Intelligence, with the advice of USIB.

Establish guidelines for collaboration between the various

•agencies and departments of the government in matters related to the NRP

and for mutual support where appropriate.

Meet on the call of any member.

5. The Director of the National Reconnaissance Office will:

a. Subject to the direction of the Director of Central

Intelligence, have sole responsibility for the management and operational

control of all projects of the National Reconnaissance Program.

. b. Through appropriate recommendations to the DCI and the •

Executive Committee ensure that the assignment of responsibilities and funds

for research, development and program operation will within available

resources exploit the MI potentialities of the concerned agencies of

the government, and be in accordance with established requirements and

priorities.

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Have full access to information on all programs and activities

undertaken as part of or in support of the National Reconnaissance Program.

Maintain and provide to the members of the Executive Committee

records of the status of all projects, programs and activities of the

National Reconnaissance Program in the research, development, production,

and operational phases.

Prepare a comprehensive budget for all aspects of the National

' Reconnaissance Program and defend the budget as required.

Establish a fiscal control and accounting procedure to ensure

that all funds expended in support of the National Reconnaissance Program

are fully accounted for and appropriately utilized by the agencies concerned.

-In particular, the budget shall show separately those funds to be applied to

research and exploratory design development, systems development, procurement,

and operational activities.

g. Sit with the United States Intelligence Board.

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ANNEX A

TO

NATIONAL SECURITY COUNCIL INTELLIGENCE DI•ECTIVE

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