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PROCEDURAL CONSIDERATIONS 

FOR MOL PROGRAM MANAGEMENT 

z 

41•■••••• 

BYE-37596/65 

GENERAL 

It was clear, during the evolutionary phases of the Manned 

Orbiting Laboratory Program, that the Secretary of Defense desired 

qat special emphasis and attention be placed on MOL management 

arrangements. MOL represented a unique management problem, broad in 

both scope and complexity with a program structure quite different from 

that of previous satellite reconnaissance programs. The relationships 

of participating elements of the two major organizational entities 

involved in the MOL, the Department of the Air Force and the National 

Reconnaissance Office, required careful and specific definition in 

order to provide for timely, orderly, integrated program management. 

The Director, National Reconnaissance Office, is charged with the 

conduct of the National Reconnaissance Program (NRP). MOL is subject 

to DNRO guidance and direction, as an element of the NRP, with respect 

to its terrestrial image forming and SIGINT.sensing systems of practical 

intelligence application. In this regard, MOL is not unlike other 

covert satellite programs of the NRP. 

The Director, Special Projects, reporting directly to the DNRO, 

has, in the past, undertaken the program management, technical direction, 

contracting activities, mission operations, and security associated with 

such programs. This has been a satisfactory arrangement for these 
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<4R-SECPROI 41,a 

programs where the reconnaissance sensor itself has been the major 

elements around which overall system integration is postured. MOL 

departs from this condition, due both to the introduction of man as a 

major system element, and to the currently expressed national policy 

of overt and unclassified admission of the existence of MOL. Hence, 

conduct of MOL, per se, as a covert program is denied, although conduct 

of covert activities within the program itself is not. 

These considerations placed special constraints upon the formulation of effective management arrangements. As a result, the program 

management structure approved by the Secretary of Defense provided 

for a meld of the interdependent functions of the Department of the 

Air Force and the National Reconnaissance Office at a responsible, 

senior management level -- that of the Secretary of the Air Force who, 

with the advice and assistance of the DNRO, is responsible for executive 

management of all aspects of the MOL Program. Executive management in 

its usual sense, and the sens intended here is a guiding and integrating 

function, which does not overtake individual responsibilities of 

participating elements. Hence the DNRO does report directly to the 

Secretary of Defense for all aspects of the NRP, but is responsive to the 

Secretary of the Air Force with respect to insuring that the NRP 

elements of MOL become part of a closely coordinated whole. It must be 

understood that the DNRO plays a major role in the formulation of 

guidance which is issued to the Director, MOL. The Director, MOL, 

reporting directly to the Secretary of the Air Force, is the principal 

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operate.::•, agent for the direction of the MOL Program and is responsible 

to establish, manage and conduct, in accordance with DNRO guidelines, 

task assignments and requirements, :::11 aspects of the MOL Program as 

assigned by the Secretary of the Air Force. 

The intent and meaning of the approved MOL management plan in these 

aspects is clear -- guidance and direction issued by the Director, MOL 

which involve an interface with the NRP will be entered into under DNRO 

guidelines, task assignments and requirements. Guidance and direction 

issued by the Director, MOL under these circumstances is clearly 

competent and authoritative, not only for "white" aspects of the MOL 

Program, but also for "black" aspects -- those which interface with the 

NRP. 

PRINCIPTRS OF THE MANAGEMENT STRUCTURE 

The principal objectives of the MOL management structure are to 

insure that program management is responsive to approved program policy 

and guidance, and is capable of conducting the program within cost 

ceilings while meeting schedules and performance goals. To this end 

strong, centralized, integrated program direction will be exercised 

from a Washington.area office, by General B. A. Schriever, as Director, 

MOL, utilizing responsive, streamlined, vertical management for all 

aspects of the program. No other channel of program direction is 

specified, and it is clear that no other is intended. 

Functional responsibilities of the participants are specified, 

which provide that the Director, Special Projects will establish and 

manage a sensor payload office co-located with the MOL Systems Office. 

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This office is responsible for MOL sensor development, and is responsive 

to program direction related to system integration, technical interface, 

and master schedule matters flowing from the Deputy Director, MOL. The 

functional responsibilities of the Deputy Director, MOL, and of the 

Director, Special Projects and his MOL Sensor Office are not dependent 

upon the channel through which program direction flows, nor does the 

course of this channel alter the basic responsibilities and allegiances 

of either. Each is clearly responsible for his respective element of 

the program, and each has the necessary authority for its effective 

pursuit. 

PROCEDURES FOR PROGRAM GUIDANCE AND DIRECTION 

Several categories of guidance and direction are involved, and 

each differs with respect to its influence on the NRP and reconnaissance 

sensor matters. They are: 

a. That which clearly does not involve the NRP or reconnaissance 

sensor matters, either directly, by implication, or as a result of activity 

responsive to the guidance. 

b. That which may involve NRP or reconnaissance sensor matters 

indirectly from an information point of view, but necessitates no NRP 

or sensor reaction. 

c. That which may require NRP or sensor reaction, e.g., 

schedule changes, minor interface specification changes, funding considerations, etc. 

d. That in which NRP or sensor reaction or response is required 

in a major sense, e.g., major changes in mission profiles, direct integration problems, etc., which may require major sensor changes. 

DORIAN 

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. That which is primarily of NRP or reconnaissance sensor 

orientation, with minor involvement with other MOL Program aspects. 

Although the above categories nee:: not necessarily be treated from 

the same procedural standpoint, there is an advantage in adopting 

standard practices as a baseline, then applying consistent modifications 

on a case-by-case basis. Whatever such modifications may be, the baseline of guidance and direction should focus on the basic intent of the 

approved MOL management theme: strong, centralized, integrated program 

direction. 

Under these circumstances, the following practices and procedures 

are suitable for adoption. They are based on the premise that all 

guidance and direction will be issued by the Director, MOL with respect 

to all aspects of the MOL Program to both the Deputy Director, MOL and 

the Director, SAFSP. They are consistent with the spirit and intent 

of MOL management; they preserve a single, clear line of direction and 

permit integration of "black" and "white" guidance and direction at the 

most effective and responsive management level; they insure consistency 

of guidance and direction to both major field agencies, and preserve 

effective program discipline. 

Procedural Principles: 

DNRO issues MOL guidance and direction to Director, 

MOL, for integration, and subsequent direct transmittal to both Director, 

SAFSP, and Deputy Director, MOL. 

-- Deputy Director, MOL, and Director, SAFSP, each retains 

full responsibility for implementing program guidance and direction 

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111:1311T 

issued by the Director, MOL. On the basis of local agreement the 

Deputy Director, MOL directs the day-to-day activities of the SAFSP 

MOL Sensor Payload Office in system integration, technical interface, 

and program master schedule matters. 

-- Director, SAFSP reports to DNRO through Director, MOL 

for MOL matters. 

-- Director, SAFSP reports directly to DNRO for NRP 

matters, and simultaneously to the Director, MOL where MOL matters are 

involved. 

-- Written documents which carry guidance and direction to 

Director, SAFSP will bear the personal signature of the DNRO or in his 

absence, a specifically designated alternate, in addition to that of 

the Director, MOL. Electrically transmitted messages will carry a 

phrase in the preamble expressing DNRO authority such as: "For General 

Martin from General Schriever by direction of Dr. Flax." It is 

mandatory-that the signature or coordination of the DNRO, or his 

specifically designated alternate,be secured on any program guidance 

and direction to the Director, SAFSP. 

Interface with the NRO: 

-- Deputy Director, MOL will interface with the NRO 

through the Director, SAFSP on the basis of local agreement. 

-- Selected elements of the Washington Staff of the Director, 

MOL will maintain a continuing and close working relationship with the 

NRO Staff, providing such aid and assistance as may be required to maintain close MOL integration with the NRP, and to insure that DNRO 

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TOP sale. 

guidance to MOL arising from the NRO Staff is undertaken in full 

coordination with overall MOL Program objectives. In the same manner, 

MOL program guidance and direction arising from the Director, MOL, 

Washington Staff which may involve the NRO or NU, will be fully 

coordinated with the NRO. 

ALEXANDER H. FLAX B. A. SCHRIEVER, General, USAF 

Director, NRO Director, MOL Program 

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teN 

0111■1110 

=1.1111•NOMINIIIIN 

careful and specific definition in order to provide for timely, 

orderly, integrated program management. , 

The Director, National Reconnaissance Office, is charged with 

the conduct of the National Reconnaissance Program INRP). MOL 

PROCEDURAL CONSIDERATIONS 

FOR MOL PROGRAM MANAGEMENT 

GENERAL 

It was clear, during the evolutionary phases of the Manned 

Orbiting Laboratory Program, that the Secretary of Defense 

vammarmw~* desired that special emphasis and attention be placed on MOL 

management arrangements. MOL represented a unique management problem that was considerably broader in both scope and 

 complexity than has been true of previous satellite reconnaissance 

prog-rams. The relationships of participating elements of the two 

111101•11.111101111010 

major organizational entities involved in the MOL, the Department 

 of the Air Force, and the'National Reconnaissance Office require 

Us. 

`43 is subject to DNRO guidance and direction, as an element of the 

,43 

NRP, with respect to its terrestrial image forming and SIGINT 

P.) 

I sensing systems of practical intelligence application. In this regard, 111 

 :VIOL is not unlike other covert satellite programs of the NRP. 

LORIAN 

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The Director, Special Projects, reporting directly to the DNRO, 

has, in the past, undertaken the program management, technical 

direction, contracting activities, mission operations, and security 

associated with such programs. This has been a satisfactory 

arrangement for these programs whose scope and complexity are 

relatively modest, and where the reconnaissance sensor itself has 

been the major element around which overall system integration is 

postured. MOL departs from these conditions, due both to the 

introduction of man as a major system element, and, to the current 

national policy of overt and unclassified admission of its existence. 

Hence, conduct of MOL, per se, as a covert program is denied, 

although conduct of covert activities within the program itself is not. 

• 

These- considerations placed special constraints upon the formulation of effective management arrangements. As a result, the 

program management structure adopted provided for a meld of the 

interdependent functions of the Department of the Air Force and the 

National Reconnaissance Office at a responsible, senior management 

level -- that of the Secretary of the Air Force who, with the advice 

and assistance of the DNRO, is responsible for executive management of all aspects of the MOL Program. The Director, MOL, 

reporting directly to the Secretary of the Air Force, is the principal 

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operating agent for the direction of the. MOL Program and isresponsible to establish, manage and conduct, in accordance with 

DNRO guidelines, task assignments and requirements, all aspects 

of the MOL Program. as assigned by the Secretary of the Air Force. 

The intent and meaning of the approved MOL management plan 

in these aspects is clear -- guidance and direction issued by the 

Director, MOL which involve an interface with the NRP will be 

undertaken with the advice and assistance of the. DNRO, and under. 

DNRO guidelines, task assignments and requirements. Such guidance and direction issued by the Director, MOL is clearly competent 

and authoritative, not only for "white" aspects of the MOL Program, 

but also for "black" aspects -- those which interface with the.NRP. 

PRINCIPLES OF THE MANAGEMENT STRUCTURE 

The principal objectives of the MOL management structure are 

to insure that program management is responsive to approved program policy and guidance, and is capable of conducting the program 

within cost ceilings while. meeting'schedules and performance goals. 

To this end strong, centralized, integrated program direction will 

be exercised from a Washington area office, by. General B. A. 

Schriever, as Director, MOL, utilizing responsive, streamlined, 

• Pa, 4174 • I 
of activity responsive to the guidance. - 

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DORIAN ' 

ilandkl, via BYRN 

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a. That which clearly does not involve the NRP or reconnaissance sensor matters, either directly, by implication, or as a result 

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vertical management for all aspects of the program. --:No -other 

channel of program direction is specified, and it is clear that no 

other is intended. 

Functional responsibilities of the participants are specified, 

which provide that the Director, Special Projects will establish 

and manage a sensor payload, office co-located with the MOL 

Systems Office. This office is responsible for MOL sensor development, and is responsive to program direction flowing from the Deputy 

Director, MOL. The functional responsibilities of the Deputy 

Director, MOL, and of the Director; Special. Projects and his 1/101-, 

Sensor Office are not dependent upon the channel through which 

program direction flows, nor, does the course of this channel alter 

the basic responsibilities and allegiances .of either. Each is clearly, 

responsible for his respective element of the program, . and each has 

the necessary authority for its effective pursuit. 

PROCEDURES FOR PROGRAM GUIDANCE AND DIRECTION 

Several categories of guidance and direction are involved, and 

each differs with respect to its influence on the NRP and reconnaissance sensor matters. They are: • 
NRO APPROVED FOR 

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is 

b. That which may involve NRP or reconnaissance sensor 

matters indirectly from n information point of view, but necessitates no NRP or sensor reaction. 

c. That which may require NRP or sensor reaction, e.g. , 

schedule changes, minor interface specification changes, funding 

considerations, etc. 

d. That in which NRP or sensor reaction or response is 

required in a major sense, e.g., major changes in mission profiles, 

direct integration problems, etc., which may require major sensor 

changes. 

That which is primarily of NRP or reconnaissance sensor 

orientation, with minor involvement with other MOL Program aspects. 

Although the above categories need not necessarily be treated 

from the same procedural standpoint, there il; an advantage in adopting standard practices as a baseline, then applying consistent 

modifications- on a case-by-case basis. Whatever such modifications 

may be, the baseline of guidance and direction should focus on the 

basic intent of the approved MOL management theme: strong, 

centralized, integrated program direction. 

Under these circumstances, the following options can be evaluated: 

DORIAN 

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matters, and simultaneously to the Director OLwhereare involved. 

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• 

a. Option One. All guidance b.itd direction to be issued by 

the Director, MOL with respect to all aspects of the MOL Program 

to both Deputy Director, MOL and Director, SAFSP. 

Procedural Principles: 

DNRO issues MOL guidance and direction to 

Director, MOL, for integration, and subsequent direct transmittal 

to both Director, SAFSP, and Deputy Director, MOL. 

-- Deputy Director, MOL retains full responsibility 

for implementing all program guidance by the Director, MOL, 

including direction of day-to-day activities of. MOL Sensor Payload 

Office. 

-- Director, SAFSP reports to DNRO through Director, 

MOL for MOL matters. 

-- Director, SAFSP reports directly to DNRO for NRP 

-- Written documents which carry guidance and direction 

to Director, SAPS? will bear the signature of the DNRO in addition to 

the Director, MOL. Electrically transmitted messages will carry a:`. 

phrase in the preamble expressing DNRO authority such as: "For 

General Martin from General Schriever by direction of Dr. .Flax. " 

DORIAN 

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Interface with theNii.0: 

-- Deputy Director, MOL will interface with the NRO 

through the Director, SAFSP on the basis of local agreement.: 

-- Director, MOL will interface with the NRO throug 

the Director, NRO Staff. 

-- Selected elements of the Washington Staff of the 

Director, MOL will maintain a continuing and close working 

relationship with the NRO Staff, providing such aid and assistance 

as may be required to maintain close MOL integration with the 

NRP, and to insure that DNRO guidance to MOL arising from the 

NRO Staff is undertaken in full coordination with overall MOL Program objectives. In the same manner, MOL prograni guidance and 

direction arising from the Director, MOL, Washington Staff which 

may involve the NRO or NRP will be fully coordinated with the NRO. 

Pros: 

-- Consistent with spirit and intent of MOL management. 

-- Preserves single, clear line of direction. 

-- Permits integration of "black" and "white" guidance 

and direction at the most effective and responsive management level.. 

-- Insures consistency of guidance and direction to both 

major field agents. 

DORIAN 

-- Preserves effective program discipline. 

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-- Director, Special Projects, retains direct channel 

to DNRO for NRP matters, including MOL matters which involve the 

NRP. 

Cons: 

-- Director, Special Projects, is separated from DNRO 

by an intermediate management level (Director, MOL), on NRP 

matters wholly involving MOL. 

-- Management structure breaks with past SAFSP 

management patterns. 

b. Option Two. All guidance and direction to be issued by 

Director, MOL with respect to all aspects of MOL Program, to 

Deputy Director, MOL for implementation, and to Director, SAFSP 

for information. DNRO authenticates Director, MOI, guidance and 

direction by transmitting direction to comply to Director, SAFSP 

through DNRO channel: 

Procedural Principles: 

DNRO issues MOL guidance and direction to 

Director, MOL for integration, and subsequent direct transmittal 

to Deputy Director, MOL for implementation, and Director, SAFSP 

for information. 

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-- Deputy Director, MOL retains full responsibility 

for implementing all program guidance by the Director, MOL, 

including day-by-day activities of MOL Sensor Payload Office. 

-- Through direct DNRO-Director, SAFSP channel, 

DNRO instructs Director, SAFSP to comply with the MOL Program 

guidance and direction furnished by Director, MOL, with information 

copies to Director and Deputy Director, MOL. 

-- Director, SAFSP reports directly to DNRO for 

both NRP and MOL matters, informing Director, MOL simultaneously 

when MOL matters are involved. 

-- Written documents carrying MOL program guidance 

and direction will bear the signature of the Director, MOL. Electrically 

transmitted messages will carry a phrase in the preamble expressing 

Director, MOL authority such as: "For General Berg from General 

Schriever." 

-- Director, SAFSP responds to MOL program guidance 

and direction, when authenticated by DNRO, directly to Director, MOL, 

simultaneously informing the DNRO. 

Interface with the NRO: 

-- Deputy Director, MOL will interface with the NRO 

through the Director, SAFSP on the basis of local agreement, including 

DORIAN 

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specific activities relative to action undertaken on MOL program 

direction and guidance. 

-- Director, MOL will interface with the NRO through 

the Director, NRO Staff. 

-- Director, MOL consults with DNRO relative to 

integrated MOL program guidance and direction to insure its suitability for implementation by the Director, SAFSP as well as the 

Deputy Director, MOL. 

-- Selected elements of the Washington Staff of the 

Director, MOL will maintain a continuing and close working relationship with the NRO Staff to insure that DNRO guidance to MOL arising 

from the NRO Staff is undertaken in full coordination with overall MOL 

Program objectives. In the same manner, MOL program guidance and 

direction arising from the Director, MOL, Washington Staff which 

may involve the NRO or NRP. will be fully coordinated with the NRO. 

Pros: 

-- Maintains Director, MOL as focal point for issue 

of program direction and guidance. 

-- Permits integration of both "black" and "white" 

guidance and direction in Washington prior to issuance to field agencies. 

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-- Aids in preserving consistency of guidance and 

direction to both major field agents. 

-- Preserves direct channel between DNRO and 

Director, SAFSP on all NRP and MOL matters. 

Cons: 

-- Departs from spirit and intent of MOL management 

which calls for strong, centralized, integrated program management 

from a Washington area office. 

-- Introduces two channels of direction, even though the 

guidance and direction transmitted through each may be the same. 

-- Introduces an opportunity for a degree of confusion 

at the field operating level. 

-- Increases difficulty in effective integration of overall 

program guidance and direction, and in maintaining its consistency. 

-- Resolution of MOL problems involving sensor or NRP 

matters will inevitably be escalated to DNRO. 

c. Option Three. All guidance and direction to be issued by 

Director, MOL with respect to non-BYEMAN aspects of the MOL 

program to Deputy Director, MOL for implementation, and to Director, 

SAFSP for information. DNRO issues all guidance and direction with 

DORIAN 

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ui 

respect to BYEMAN aspects of MOL program to Director, SAFSP 

for implementation, and to Director, MOL for implementation 

or other appropriate action. 

Procedural Principles: 

DNRO issues BYEMAN aspects of MOL guidance 

and direction to Director, SAFSP for implementation, and to 

Director, MOL for implementation or other appropriate action. 

Director, MOL integrates DNRO guidance and direction for 

subsequent transmittal to Deputy Director, MOL for implementation. 

-- Deputy Director, MOL retains full responsibility 

for implementing all program guidance by the Director, MOL, including 

supervision of day-to-day activities of MOL Sensor Payload Office in 

accordance with program direction issued by Director, SAFSP to 

that office. 

-- Director, SAFSP reports directly to DNRO for all 

BYEMAN aspects of MOL. 

-- Director, SAFSP responds to BYEMAN aspects of 

MOL Program direction and guidance directly to DNRO, simultaneously 

informing Director, MOL. 

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Interface with the NRO: 

-- Deputy Director, MOL will interface with the NRO 

through the Director, SAFSP on the basis of local agreement, including specific program direction and guidance channels to the MOL 

Payload Sensor Office, and specific activities undertaken in response. 

-- Director, MOL will interface with the NRO through 

the Director, NRO Staff. 

-- Director, MOL consults with DNRO relative to 

integrated MOL program guidance to insure its compatibility with 

DNRO guidance to Director, SAFSP on BYEMAN aspects of MOL 

program. 

DNRO invites Director, MOL comment on projected 

guidance and direction on BYEMAN aspects of MOL program intended 

for implementation by Director, SAFSP. 

-- Selected elements of the Washington Staff of the 

Director, MOL will maintain a continuing and close working relationship with the NRO Staff to insure that DNRO guidance to MOL arising 

from the NRO Staff is undertaken in full coordination with overall 

MOL Program objectives. In the same manner, MOL program guidance 

and direction arising from the Director, MOL, Washington Staff which 

may involve the NRO or NRP will be fully coordinated with the NRO. 

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Pros: 

-- Insures the Director, SAFSP direct access to 

DNRO on all MOL-related BYEMAN matters. 

-- Preserves present management pattern utilized 

by Director, SAFSP. 

-- Provides for integrating overall MOL program 

direction and guidance, and aids in maintaining its consistency. 

Cons: 

-- Clear departure from spirit and intent of MOL 

management, which calls for strong, centralized, integrated 

program management from a Washington area office. 

-- Introduces two separate, and separately managed, 

channels of direction. 

-- Confusion at field operating levels, particularly 

in MOL Payload Sensor Office, is probable due to separate channels. 

-- Effective integration of overall program guidance 

very difficult. 

-- Responsibility and authority for overall program 

effectively denied Director, MOL. 

-- First effective level of resolution of MOL problems 

involving sensor or NRP is DNRO. 

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RECOMMENDED PROCEDURE: 

Option One should be elected. Any other option, or any variant 

of option one which recognizes two authoratative channels of program 

guidance and direction removes from the Director, MOL the 

capability to exercise effective responsible overall program 

management. 

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