OFFICE OF THE DIRECTOR

S /Gs

TOP-SECIEFisr NATIONAL RECONNAISSANCE OFFICE CeLL'''''.4."

WASHINGTON. D.C. L,4*. 4- 1.-4 e.

hiP4L-11 1.14'•

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MEMORANDUM FOR DR. SCHLESINGER

SUBJECT: The NRO Charter

The current operating charter for the National Reconnaissance Office is at TAB A. It is called an Agreement for

Reorganization of the National Reconnaissance Program, dated

August 11, 1965, and signed by the Deputy Secretary of Defense

and the Director of Central Intelligence. The document evolved

through several earlier versions dating back to Presidential

direction in 1960 to streamline the management of the satellite

reconnaissance effort, and reflects to a considerable extent

the recommendations made to the President by the Foreign

Intelligence Advisory Board. It is an unusual mechanism for

chartering a large intelligence activity. The National

Security Council Intelligence Directive (NSCID) has regularly

been used for similar purposes, and many agencies that the NRO

must work with are chartered by NSCIDs. The 1965 document

post-dated the early NSCIDs and hence took precedence over

them, at least tacitly. And partly because it was an interagency agreement signed by the Deputy Secretary of Defense,

it carried the weight in DOD needed to get the job done. The

Agreement has pretty well stood the test of time--until recently.

Two developments lead me to believe that the NRO charter

should be up-dated:

of the

In this job,

all other

review and

Intelligence

consistent

The first of these is the establishment

Assistant Secretary of Defense for Intelligence.

Dr. Al Hall has tended to view the NRO along with

DOD intelligence resources, subjecting the NRO to

direction which was not envisioned in the Foreign

Advisory Board report to the President and is not

with the 1965 Agreement.

CASSINO PROM

GENERAL j11111111W OF

EXECUTIVE ORDER HUI CATEGORY SW DIO.ASSIFY ON IMP DET.

-TOP---SfeRETam rq
CLASSIFIED

COMM

EXECUTIVE

GORY $32 DEnA

MIT FROM

DIM OF

mniow* CATEPAP CET.

-T-OP-SECREV

The second is the reorganization of the intelligence

community directed by the President in November 1971. As a

necessary part of this reorganization, the NSCIDs for national

intelligence activities were up-dated, revised, and reissued.

In this process, our 1965 Agreement became out-dated, and at

least one substantive change in the scope of NRO authority was

made. The new NSCID No. 6 provides for a division of SIGINT

satellite payload responsibilities between the National Security

Agency and the NRO; this change erodes my responsibility for

total operational control of the program.

At present, therefore, I find that agencies all around

the NRO are formally chartered: the USIB is established by

NSCID No. 1; NSA by NSCID No. 6; and NPIC by NSCID No. 8.

But the only current direction with respect to the NRO is the

President's statement in his November 1971 reorganization

directive: "I am directing the retention of the present

management structure of the National Reconnaissance Office."

I conclude that the NRO, which performs the collection activities bridging the NSC-chartered requirements and exploitation

organizations, ought to be chartered in a similar way by a new

NSCID. I have prepared a draft of this document, at Tab B.

In the draft NSCID I have proposed to incorporate the basic

provisions of the 1965 Agreement, but with some changes:

The use of overhead collection by spacecraft

sensors is emphasized. This'is a broader connotation than

the previous use of the term.Overflight.

The use of aircraft as an NRP asset is minimized.

I believe the future value of the NRP lies primarily in the

application of spacecraft payloads to overhead intelligence

collection, and that is where our resources should be applied.

And we are turning the bulk of all U-2 aircraft over to the

Air Force, retaining but four U-2Rs for the CIA fleet. The

proposed NSCID does not exclude aircraft from the NRP, but it

is intended to pave the way to use aircraft or drone resources

when more appropriate than spacecraft for NRP missions, without necessarily maintaining a dedicated capability.

cowpox als

um or co•qs
40P-SECREFThe proposed NSCID does not address the Satellite

Operations Center, specified in the 1965 document. The trend

toward dedicated ground stations and highly refined software

for satellite reconnaissance vehicles gives us potentially

greater flexibility in operations management than in the past.

While the NRO must retain operational control over its missions,

theke may be more viable alternatives than a central SOC.

The role of the CIA in systems .development has

been de-emphasized, but not precluded. I believe the point

can be made that the organization which specifies requirements

should be removed from building complete systems for operations.

I see a strong continuing need, however, to involve the CIA in

the imaginative research and development of new sensor concepts.

5. I propose that the DNRO sit with the Intelligence

Resources Advisory Committee on NRP matters, as I do now on

the USIB.

The NRO has been a very sumssful venture over the years,

and certainly important to the nation. I attribute much of

its success to the autonomous nature of the management structure, which has permitted technical and operational achievements second to none while maintaining excellent financial

control. The alternative, toward which there is now a tendency

and pressure to move, is a normalization of NRP management.

I doubt that the Program could be as responsive as it has been

if that occurs.

I would appreciate your ideas. Whether the final solution

is an NSCID, or even a revised Memorandum of Agreement, I

believe the provisions should. be basically the same. And we

• should have this document soon.

John L. McLucas

mAssinED PROM'

GENERAL • DUCE OF

EXECUTIVE ORDER *APTION CATEGORY 512 DE: KIP CET.

COMMA NO

COP, N Minn
--TOP-SECRETNot to be Distributed NSCID No.

Outside the U.S. Draft Jan .2, 1973

RATIONAL SECURITY COUNCIL INTELLIGENCE

DIRECTIVE NO;

OVERHEAD RECONNAISSANCE,

(Effective Date)

Overhead Reconnaissance of foreign territories 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 that

overhead reconnaissance be conducted as prescribed herein.

lopiEnEy_ COMM' MI

WV,

nee er,
A. The. National Reconnaissance Program 

There is hereby established a National Reconnaissance

Program as a single, covert,. national program for overhead

collection of intelligence and mapping and geodetic information.

Included are the development, management, control, tasking and

Operation of all spacecraft projects, both current or planned,

employing image-forming sensors of reconnaissance quality, nonimage-forming sensors designed for reconnaissance purposes, and

signal and electronic intelligence devices. Overflights of

denied territories by aircraft or drones-are also the responsibility of the National Reconnaissance Program. Excluded are

normal non-satellite peripheral reconnaissance operations and

aircraft and drone reconnaissance in tactical theaters of

operation.

The National Reconnaissance Program shall be responiive

directly and solely to the intelligence collection objectives,

requirements and priorities established by the United States

Intelligence Board. Satellite, aircraft, and drone missions

shall be subject to the operational approval of the 40 Committee.

3. It is the intent of this directive that the National

Reconnaissance Program not engage in the production and dissemination of finished intelligence.

TOP-SECRETCOMM DO

COMP OD .Its

pasts
-TOR-SE6RETB. Management of the National Reconnaissance Program

The Secretary of Defense is designated as the Executive

Agent of the Government for the National Reconnaissance Program

with the ultimate responsibility and authority for the management and conduct of the Program.

The National Reconnaissance Program Executive Committee

will guide and participate in the formulation of the National

Reconnaissance Program and approve or modify the Prograi and

its budget.

The Director of the National Reconnaissance Office is

responsible for implementing the National Reconnaissance Program.

The National Reconnaissance Office will be given sup,

port as required from normal staff elements of the departments

and agencies concerned, although these staff elements will not

participate in the Program or its projects except as the

Director of the National Reconnaissance Office specifically

requests, nor will the Program or projects be subject to normal

Department of Defense staff review.

C. The Secretary of Defense Will:

1. Develop a single National Reconnaissance Program.

TOP-SECRET

011181111101 NO

LOIN CONES

oasts
Establish the National Reconnaissance Office as a

separate operating agency of the Department of Defense.

Appoint the Director of the National Reconnaissance

Office who will report to him and be responsive to his instructions, and will execute the National Reconnaissance Program.

Concur in the choice of the Deputy Director of the

National Reconnaissance Office who will report to the Director

of the National Reconnaissance Office and be responsive-to his

instructions.

Sit with members of the Executive Committee, when

necessary to reach decisions on issues on which Committee

•

agreement cannot be reached.

D. The Director of Central Intelligence Will:

Sit as member of the Executive Committee.

Appoint the Deputy Director of the National Reconnaissance

Office, with the concurrence of the Secretary of Defense.

Review and approve the National Reconnaissance Program

budget each year.

Establish, in coordination with the Director of the

National Reconnaissance Office, separately identifiable units

within the Central Intelligence Agency responsible for the

40P-SECREF

CONTIMI 

MeV Of COMBS

Or f•OIS
TOP-SECRETconduct of those assigned portions of the National Reconnais- ,

sance Program. These units will function under the direct

control of the Director, National Reconnaissance Office.

Provide security policy guidance and support to the

Director, National Reconnaissance Office in the protection

of sensitive National Reconnaissance Program activities.

Establish the collection priorities and requirements

for the targeting of National Reconnaissance Program operations and the establishment of their frequency of coverage.

7. Review the results obtained by the National Recon

naissance Program and recommend, if appropriate, steps for

improving such'results.

E. The National Reconnaissance Program Executive Committee 

1. The National Reconnaissance Program Executive

Committee, consisting of the Deputy Secretary of Defense,

the Director of Central Intelligence, and the Director,

Office of Science and Technology, will guide and participate in the formulation of the National Reconnaissance

Program through the Director, National Reconnaissance Office.

The Director of the National Reconnaissance Office will sit
with the the Executive Committee but will not be a voting member.

If the Executive Committee cannot agree on an issue the

Secretary of Defense will be requested to sit with the Committee in discussing this issue and will arrive at a decision.

The National Reconnaissance Program Executive Committee will:

Recommend to the Secretary of Defense an appropriate level of effort for the National Reconnaissance Program

in response to reconnaissance requirements provided by United

States Intelligence Board and in the light of technical

capabilities and fiscal limitations.

Approve or modify the consolidated National

Reconnaissance Program and its budget.

c. Approve the allocation of responsibility and the.

corresponding funds for research and exploratory development

for new systems. Funds shall be adequate to ensure that a

vigorous research and exploratory development effort is achieved

to design and construct new sensors to meet intelligence requirements aimed at the acquisition of intelligence data. This effort

shall be carried out by both Central Intelligence Agency and

Department of Defense.

TOP-SECRETalma me

1:0•1 Of

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COM,

Pa t$
d. Approve the allocation of development responsi-

,

bilities and the corresponding funds for specific reconnaissance

programs with a view to ensuring that the development, testing

and production of new systems is accomplished with maximum

efficiency by the component of the Government best equipped

with facilities, experience and technical competence to undertake the assignment. It will also establish guidelines for

collaboration between departments and for mutual support where

appropriate.

Assignment of responsibility for engineering

development of sensor subsystems will be made to either the

Central Intelligence Agency or Department of Defense components

in accordance with the above criteria.

The engineering development of all other subsystems, including spacecraft, re-entry vehicles, boosters

and booster interfaCe subsystems shall in general be assigned

to Department of Defense component.

e. Periodically review the essential features of the

major program elements of the National Reconnaissance Program.

2. The Executive Committee shall meet on the call of

either the Deputy Secretary of Defense or the Director of

TOP-SECRET- co,v OP

COPIES •
Central Intelligence. All meetings will be attended by the

Director and Deputy Director of the National Reconnaissance

Office and such staff advisors as the Deputy Secretary of

Defense or the Director of Central Intelligence consider

desirable.

F. The Director of the National Reconnaissance Office Will:

Subject to direction and control of the Secretary of

Defense and the guidance of the Executive Committee, have the

responsibility for managing the National Reconnaissance Office

And directing and coordinating the activities of all participating

government agencies in executing the National Reconnassance

Program.

Subject to review by the Executive Committee, have

authority to initiate, approve, modify, redirect or terminate

all research and development programs in the National Reconnaissance Program. Ensure, through appropriate recommendations

to the Executive Committee for the assignment of research and

development responsibilities and the allocation of funds, that

the full potentialities of agencies of the Government concerned

with reconnaissance are realized for the invention, improvement

and development of reconnaissance systems to meet United States

Intelligence Board requirements.

COMP. WO

COPIES
11W-SECRETHave authority to require that he be kept fully and

completely informed by all Agencies and Departments of the

Government of all programs and activities undertaken as part

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/Or operational phases.

Prepare, defend and administer a comprehensive budget

for all aspects of the National Reconnaissance Program.

Maintain fiscal control and accounting to ensure

that all funds expended in support of the National Reconnaissance Program are fully accounted for and appropriately

used by the agencies concerned. In particular, the budget

shall show separately those funds to be applied to research

and explorateiry design development, systems development, procurement, and'operational activities. Funds expended or

obligated under the authority of the Director of Central

Intelligence under Public Law 110 shall be administered and

accounted for by Central Intelligence Agency and will be

reported to the Director of the National Reconnaissance Office

in accordance with agreed upon procedures.

-TOP-SECRET4:011601. NO

COOT Of WW•

PAOLO
10PSECRET--

Sit with the United States Intelligence Board and the

Intelligence Resources Advisory Committee on matters affecting

the National Reconnaissance Program.

Obtain appropriate clearances from the 40 Committee

for all National Reconnaissance Program missions.

Task the personnel, facilities and other resources

of the Department of Defense, the Central Intelligence Agency,

and other agencies as required to support the conduct of the

National Reconnaissance Program.

Enter into such agreements with other departments or

agencies as required in the implementation of this agreement.

11. Process, title, produce and deliver the collected

product to the users as specified by the United States

Intelligence Board.

G. The Deputy Director of the National Reconnaissance Office 

Will:

Serve full time in a line position directly under the

Director National Reconnaissance Office.

Act for and exercise the powers of the Director of the

National Reconnaissance Office during his absence or disability.

-TOP-SECRETCOMM NO

CO., OP WKS

•11411__L__ Or Paul
H. The National Reconnaissance Office Will:

Be staffed jointly in such a fashion as to reflect the

best talent appropriately available from the Central Intelligence

Agency, the three military departments and other Government

agencies.

Report to the Director, National Reconnaissance Office

and the Deputy Director, National Reconnaissance Office and

will maintain no allegiance to their agency or Department of

•

origin.

I. Relationship With Other Departments and Agencies:

In the fulfillment of their respective responsibilities

for the production of intelligence, the several departments and

agencies shall not duplicate the intelligence collection and

research activities of the National Reconnaissance Office,

but shall make full use of existing capabilities of this

element of the intelligence immunity.

To insure that all efforts involving spaceborne reconnaissance sensors are dealt with in a manner which will protect

the interests of the United States Government including the

National Reconnaissance Program, all departments and agencies
must deal with the National Reconnaissance Office on all.

such activities.

-TOP-SECRETCOMM MO

MOT Sr COMB
•

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•

11 August 1965

AGREENENT, FOR REORGANIZATION OP THE

NATIONAL RECONNAISSANCE PRCGRAH

A. The rstional Recontaissenca Pro2ran 

The N22 is a single program, national in character,

to meet the intelligence needs of the Cavern:cent under a

strong national leadership, for the development, management,

control and operation of all projects, both current and long

range for the collection of intelligence and of mapping and

geodetic information obtained through overflights (excluding

pariheral reconnaissance opetatiams). The potentialities of

U. S. technology and all c2erarional resources and facilities

mtst be aggressively and imaginatively =plaited to develop

and o:-..e-zate systems for the collection o intelligence which

are fully responsive to the Government's intelligence needs

and objectives.

Tha National Reconnaissznce Pragrem shall be responsive

directly and solely . to the intelligence collection requirements

and priorities established by the United States Intelligence

Loard. Tartezing requirements and priarities and desired

frequency of coverage , of both. satellite and manned aircraft

missions over denied areas shall continue to be the responsibility

of USI3, sub; ect to the operation al approval of the 3b3 Co=ittee.

B. The Sac star'of Deense uill:

Establish the NRO as a separata'agency of the DoD and

will have the ultimate responsibility for the nanagement and

operation of the NRO and the \RP;

Choose a Director of the NRO who will report to him

and be responsive to his instructions;

Excluded from automatic regrading;

1 DoD Dir. 5200.10 does not apply. j

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Concur in the choice of the Deputy Director of the NM who will report tc the DNRO and ba responsive to his instructions;

Review and have the final power to approve the NB? budget;

5. Sit with members of the Executive Committee, when

necessary, to reach decisions on issues on which committee

agreement could not be reached.

C. The Director of Central Intellitzerce will:

1. Establish the collection priorities and requirements

for the targeting of xi? operations and the establishment of

their frequency of coverage;

1 . Review the results obt.aned by the NR? and recommend,

if appropriate, steps for improving such results;

Sit as a member of the Executive Committee;

Review and approve the NB? budget each year;

5. ?rov4 de security policy guidance to maintain a uniform system in tae whole Nil? area.

D. 2ecenr.s4”zn-* .7=c2ram Z:ce=tive Ccm.7.4ttee

1. An Yap Executive Ccmmittee, consisting of the Deputy

Secretary of Defense, the Director of Ceatral Intelligence,

and the Smecial Assistant to the ?resident for Science and

Technology, is hereby established to guide and participate in

the formulation of the WE?-through the DNRO. (The MO will

sit with the Executive Committee but will not be a voting member.)

If the Executive Cormittee can not agree on an issue the

Secretary of Defense will be requested to sit with the Committee in discussing this issue and will arrive at a decision. The NRP Executive Committee will:

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Recommend to the Secretary, of Defense an appropriate

level of efforc for tha NR2 in response to reconnaissance

requirements provided by USIB and in the light of technical

capabilities and fiscal limitations.

Approve or modify the consolidated 'National

Reconnaissance ?rogram End its budget.

• •

Approve the allocation of responsibility and the

corresponding funds for research and Exploratory-development

for new systems. Funds shall'be adeqtate to ensure that a

vigorous research End exploratory development effort is achieved

and maintained by the Department of Defense and CIA to design

and construct new sensors to intelligence requirements

aimed nt the acquisition of intelligence data. This effort

shall be carried cut bota CII cad rop,

Approve the allocation of davalopment responsibilities and the corresponding funds for specific reconnaissance

programs with a view to ensuring that the development, testing

and production of new sysver.s is accorplished with maximum

efficiency by the component of the Go%ernment best equipped with

facilities, experience and technical competence to underte:e the

assitrnment. It will also oszalllis% rvidalines . for collaboration

beta a_ departments end for mutual support where appropriate.

Ass 4 gnmen: o- for eng'rearjng de• e'opment of

sensor suIlsyster.s will "ne mach rc eitl:er the CIA or DoD components

aocordance vita tae above criter: a. The eng4 neer4 ng development of all other subsystems, including spacecraft, reentry

vehicles, boosters and booster interface subsystems shall in

general be assigned to an Air Force component, recognizing,

however, that sensors, spacecraft and reentry vehicles are integral components of a system, the developaent of which must

proceed on a fully coordinated basis, with a view to ensuring

optimum system development in support of intelligence requirements for overhead reconnaissance. To optimize the primary

objective of systems development, design requirement of the

sensors will be given priority in their integration, within the

spacecraft and reentry vehicles. • •

roPr-65 HANDL:. VIA OaiROL SYSTZM ON
Assign operational responsibility for various

types of canned overflight missions to CIA or DoD subject to the concurrence of the 303 Conmittee.

Periodically review the essential features of the cafor Pro; rat elements of the X'. .

2. The Executive Committee shell meet on the call of

either tha Deputy Secretary of Defense or the Director of

Central Intelligence. All meetings will be attended by the

DKR3 and such staff advisors as the Deputy Secretary of Defense

or the Director of Central Intelligence consider desirable.

E. Xatioral • Reconnaiseence Office 

To .1 -rienent the NT', the Sec-_ e o' De fense will establish the •NRO as a separate operating agency of the DoD. -. shall include the SC3 uhich than be jointly cannot.

•

.Secretary 

The Director of the :00 eaall be appointed by the of Defense. The Director :mum:

Subject to direction and control of the Secretary

o' Defense an^ the guidance of the :xecutive Cm:nit:

foe-oh in ea as set fie... of D above, have the responsibility for nanaging the :ao and emecuting the =12.

Subject to revie• iv; the Executive Conmittee, and the provisions of Section D above, have authority to initiate, approve, codify, redirect or terninate all research and developnen .programs in the xap . Ensure, through appropriate recomnendetions to the Executive Committee for the, assignnent of research and development 

the full 

responsibilities and the allocation of funds, that potentialities of agencies of the Government comcerned with reconnaissance are realized for the invention, 

and improvement development of reconnaissance systems to ceet USI3 require- ments.

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c. Have authority to require that he be kept fully

and completely 'n formed by al l Agencies and Departments of the

Gavetnment of all programs and activities undertaken as part of

the \RP.

e. Maintain and 'prov 4 de to the meMbers of the Executive

Comnittee records c2 the ttatus of all projects, programs and

activities of tha Nap in the research, devalopment, production

and/or operational phases.-

Prepare a comprehensive budget for all aspects of

the Xational Reconnaissance Ptogram.

Establish a fiscal control and accounting procedure

to ensure that all funds expended in support of the National

Reco7.-Imstance Pros are fully aecountad for and aplro,riately

utiliz.1.! by :he azancies concerned. _.Z particular, the budget

shal' show separa.te l y those funds to ba applied to research'and

exploratory design 'development, systems davelcpment, procurement,

and operational activities. Funds expended or obligated under

the autho,-' .cy of the D'rector of Cent-el Intell' ?ence unde-

?ubl4 c Law 113 stall be administered and aceounted for by CIA

and . will .C.3 reported to DN2S in acco:dz=ca with agreed upon

rocedures. •

g. Sit with the LS I2 for the matters affecting the NR2.

The Deputy Direetar.YR3 shall be appointed by the DCI

with the concurrence cf the Deputy Secretary of Defense and

shall serve full tine in a line posit en directly under the

Director N.O. The Deputy Director shall act for and exercise

the powers of the Director; yao enuring his absence or disability.

The YRO shall be jointly staffed in such a fashion as

to reflect the bast talent appropriately available from the CIA,

the three military departments and other Government agencies.

The N20 staff will report to the D:,=:3. and DDNRO and will maintain

no allegiance to the originating agency or Department.

em.

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2. Tn, t4to Alicc.:.rion of ''-cy-e.c.m 

1. Responsibility for exist ins rro3rems of the 1RP shall

be tallccated as indicated in Annex A ettschad.hereto.

(siened) Cyrus Vance (slimBd) N. F. Reborn 

Deputy Secretary of Defense Director of Central Intelligence

3.7.22TDI.E

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