USCIB: 9.3/16 

MEMORANDUM. FOR THE MEMBERS OF USCIB: 

Subject: 

References: 

USCIB Master Requirements List. 

(a) USCIB 5/453 of 3 July 1953. 

(b) USCIB 5/455 of 15 July 1953. 

(c) USCIB 9.3/7 of 27 July 1954. 

(d) USCIB 9.3/8 of 18 October 1954. 

(e) USCIB 9.3/11 of 4 November 1954. 

(f) USCIB 9.3/15 of 2 December 1954. 

3 December 1954 

1. The enclosure is circulated for consideration in connection 

with item 2 of the Agenda for the llOth Meeting of USCIB to be held 

at 1430 on Friday, 10 December 1954. 

2. Attention is invited to the references. It will be remembered that the present Master Requirements List was approved by 

USCIB on 3 July 1953 (see reference (a)) and forwarded directly to 

the Director, NSA with the concurrence of the Executive Agent for 

the production of COMINT (see reference (b)) as a new approach to 

the problem of the COMINT response to intelligence requirements. It 

was to be :reviewed in six months in the light of a report from the 

Director, NSA as to his ability to respQnd to the List and its subsequent implementing, detailed information requirements. The sixmonths review period proved to be too optimistic owing to the time 

required to prepare the Information Requirements and the broad scope 

of report desired. However the report was finally distributed 

under cover of reference (c~ on 27 July 1954. It was placed before 

USCIBEC by the Executive Secretary. USCIBEC referred it for study 

to the USCIB Intelligence Committee, which submitted to USCIBEC the 

comment and questions contained in reference (d). Meanwhile 

reference (e) was submitted by the Director, NSA in order to bring 

about improvement in the manner by which consumer requirements have 

been levied on his Agency. Reference (f) merely sunnnarizes the 

views of USCIBEC with regard to reference (d). 

3. A brief word about the present system of handling requirements levied by the Board on tpe National Security Agency may be of 

assistance. Recommendations as to form and substance of requirements 

are formulated by the USCIB Intelligence Committee on the basis of 

national intelligence objectives without regard to whether such 

requirements can be met from COMINT sources. (Previously the ability 

of the CCMINT source to produce had been an important factor in 

levying requirements). These requirements are compiled into what is 

USCIB: 9.3/16 

Declassified and approved for release by NSA on 04-04-2014 pursuant to E. 0. 1352B 

SECRET 

24 
USCIB: 9.3/16 

SEC&W:P '9.S. EYES ONLY 

REF ID:A57363 

SECRET 

Subject: USCIB Master Requirements List. 

3 DecEmber 1954 

--------~,,,_ 

known as the Master Requirements List (MRL). This List is submitted to 

USCIBEC and then to USCIB for approval. lhe approved version is then r~produced by the NSA and distributed by the Executive Secretary who 

provides 250 copies to the Director, NSA. A second list, called the 

Informat:ion Requirements List, is then prepared by the INTCOM. This 

list refers, in order, back to each requirement listed in the MRL and 

is supposed to state in detail the types of information which might be 

expected from the various COMINT sources and which it is desired be 

produced anq distributed by NSA in accordance with the priority assigned 

to the pertinent MRL listing. The information requirements, if unanimously agreed by the INTCOM, are forwarded directly to the Executive 

Secretary who in turn forwards them directly to the Director, NSA with concurr~1t distribution to the members of USCIBEC any one of whom may 

then raise an objection. Information requirements are not submitted to 

USCIB for review unless an objection that cannot be solved in USCIBEC is 

raised. Until receipt of reference (e), no lack of unanimity in the 

Intelligence Committee has been reported nor have any objections been 

raised in USCIBEC to any information or Master Requirement. 

4. THIS DOCUMENT AND ITS ENCLOSURE CONTAIN COMMUNICATIONS INTELLIGENCE INFORMATIO~ AND SHALL BE HANDLED ONLY IN CHANNELS EXPRESSLY PROVIDEL FOR COUNT. 

Enclosure 

a/s 

USCIB: 9.3/16 - 2 -

SECRET 
¥ieJBtA51363 9 

-- 2 December 1954 

MEMORANDUM Fc:R MEMBERS or USCIB 

SUBJl!:CT: Master Requirements List 

l. I have read with interest USCIB 9.3/11, which contains the vie111~ of the Director, NSA, on the USCIB Master Requir~nts List, 

and I agree wholeheartedly with his observations. 

, 2. ~u.ring our year of experience with the existing JRL and its 

Inf'ol:-mational Supplements, certain deficiencies which require correction have become apparent. I have set f'orth in Paragraphs 3 through 

10 b1!lov, the essential ingredients which I believe arrr adequate 

mechanismmst include. 

3. Basic guidance tor the u. S. COMINT ef'f'ort should originate 

with a statement of the objectives of that effort. These COMINr 

objectives should be consistent with and, in fact, must be derived 

tram the over-all. national, intelligence objectives. They must be 

defined in the light ot COMINT realities and the capabilities of other inte:~gence sources and actiVi ties. The U .s. COMINT effort should be dir~13~ed primarily to those tasks for which it has a unique capability 

and, sboul.d not be asked to pursue presently unproductive tasks exclusive:q-, to produce information of' marginal value, or to duplicate unnecessaril.7 information available through less critical sources. 

h. ~hese COMIHT objectives must dictate the basic allocation ot 

U.S. resources against foreign COMINT problems and govern the output 

ot the effort so allocated, while at the same time making provision 

for technical preparations to meet future requirements. 

S. Basic guidance of this nature must be authoritative and therefore should go i'rom a superior qualified to formulate it to a subordinate 

responsible tor implementing it. Accordingly, basic guidance must originate at ._ point no lower than USCIB itself and be addressed to the 

Director, NSA. 

~-~-. $uch guidance must be clear, succinct, and understandable and 

require_ a minim'Ulll of non-technical interpretation by NSA. It must estab- li~h prio~ties which are as near]¥ absolu..te as.possible so that there 

can be no question as to the required allocation.. at COM.INT resources or 

the product desired. 

7. At the same time, provision must be made f'or nexibility in 

adjusting the guidance to meet current intelligence and technical 

de\i'elopments as they arise. This will require that necessary provision 

al.so be made at a working level for achieving mutual understanding ot 

intelligence and technical developments. 

SECRET 
~K~iQ~A57363 ~ 

iJDGJt:.C. 1 -

8. It must be clearly recognized that USCIB guidance amounts to 

operational orders which BSA muat obey. While those providing the 

guide.ca will be concerned with the. results rather. than the details 

of the implementation, thq shoul4. be ful.11= adnaed by KSA as to the 

capabilities and limttat1ans. ot u. s. COMIB'.r resourc.ea and. be advised 

of the. effect of requirements.on technical. operations. 

9. In addition, NSA should.prepare a clear. and understandable 

ammal progress . report to USCIB concerning conformity wi.th,. and fultillment ot, the guidance received.J the basic all.o.ca.tian. ol COMIRT resources1 

and an estimate of the additi.onal.resources required to enhance fDJ.fillmel}.t_of tl;le COMrNT objectives. 

J.O. Af'ter study of this annual . report, USCIB musiL advise the 

Hatior.ial Executive Agent as to what resources it considers should be 

made ai:vai:J_able tor_ OOMift production in the comLng year. 

ll. As a constructive step.toward estab11sbme.nt of a mechanism 

inclUding the ingredient.a. which I consider essential., the attached 

paper which describes a m.echanisa_incl.ud1ng. these essentials. has been 

prepai•ed within. the Department ot Defense. 

12. I recommend that USCIB endors.e the above essentials and 

forwai•d them to USCIBEC for its guidance with instructions to prepare 

the DE!cessaey detailed papers tor Board approval., and that the enclosure 

be foJ~warded to USCmEC tar use.. as. a point o:t departure in prepap.ng its 

recoa11endations. 

ror G. B. J!JlSXIRE 

General, USMC (let) 

Assistant to the 

Secretary of Detense 

(Special. Operations) 

2 

SECRET 
WeiDfA57363 e 

NATimlAL COO.HT REQUIREMEN~S STRUCTURE 

J.. PHIORITIES RESPORSIBILI'lY OF USCIB 

Intelligence activities ot the govermen1i do not vor.1e far th--

selTes. tlie7 mat operate to acquire informatilon to support the objectiw11 

and poliey of the gcwernnen1i. Intelligence authorities are tberetore 

responsib.ls to operate 1D 'Ule J.ight Of expreaaed nationai poiic7. 1iO shi.t:t 

'their 'tiargets as nati.onaJ. po.Licy changes and to 'l>Pl1' intelligentq each or 

their reso11rces along J.ines which capitaJ.118 on unique capabilities and 

avoid need.1ess duplication ot ettort. 

In 1ihis light, the responsibiJ.ity ot uscm ia to provide gu:i.dance 

in the undentandi ng that it does not "detend.ne•• needs bu't rather in'telligentl.7 applies and interprets th• in ~ or coon. It does not •gtmerate11 

requirements but •tailors• them to CCltIN'.r realities. understanding ot this 

principle is essentia1. It is onJ:y in this wq that w are assured that 

C(J[[ft act.i.Vities will always be guided in accordance with the goals ot 

national a11thor.l ty and in proper relationship to the acti'Vi tles ot otber 

intelligence soumes. 

uscm•s job is therefore to examine the •oat recent expression ot 

national. i1'ltelligence object.ives based upon current na'tiona.L poli.07 (this 

would be DCID 4/3si now being coordinated with all V..C agencies and due for 

publicatioi:i within a month or so) and. modify it on the basis ot two Jlll"dsticksn: 

a. C<Rlft .should not be asked to pursue unattainable targets onl.7• 

Ccnpleti 811ocation Ol' C<Jllft effort tO ta8i8 iffi!cli dO not now prodiice 

_anything ot current value am give eTer,r indication ot continued 

frustration atter 'tremendous expenditure would. be disastrous. A 

reasonabl.e balance lllUSt be struck between targets ofter11lg re.Latl.wq 

quick, it not easr 1 results and those which do not. This must never 

mean that targets will not be attacked because they ar.e ditficul.t, 

but tr.b.at USCIB wigha alternatives anti •allocates• objec1;ives in terms 

of COKIH'l realities and capabilities. The Director, llSA•s periodic 

report to the Board imlicating his perf'ormance toward aatis.t'Ji.ng 

objectives and his ability" to do so in the tutl!resi asSWBes particular 

significance in this .Light and would ro:m the basis tor deciding which 

intelligence targets it would be unrealistic to assign to Cao:N'lo It 

vou1d also provide the moa't ettective means of detel'Dlimng whether 

increases in perscmne1 or facilities were neceaaaey. 

b. CCIOlf'l ettort ahou1d be directed against targets tor which it 

has a Uiiique or the b•st cai>Abiliti as c&lipared to Otlhir iitilUienca 

!2!!:!:.!!.- This implies the abil.i t17 to compare the seTeral sources ot 

intelligence. There is a lega.1. basis tor this canparison in the UC 

which is concemed with all sources except CCIO:H. USCIB as a 

corporate bocl1' has no ccnpetence to eTaluate CCltD't resources in the 

light ot all others, but can and must do so through i ta members who, 

SECRET 
as inc:lividual.s, provide the tii.e-in vith the rest ot the intelligence 

comuraityo For example, CCMift might be asked to pursue certain 

targets in East Gemany because a covert capability had recentl.7 

decliJ1ed o:r, COMift woul.c:l not be asked to supply data trca an area 

on whi.ch it had a capabil1 ty because attache or dip1omatic contacts 

were 1>:roviding adequate reporting. In contrast to tbe first )'&rdstick5, tor this aspect lfSA. would be given no production requiremen1i. 

Basic USCll~ guidance would be found in two documents a 

CQllft Obj41ctivea J:ist 

Tbia would be a lllOdit'ied llC priority objectives listo It would 

be shorter than the present USCIB Kaster Bequ:J.rements List (under 50 i.tema 

running to some five pages) and would be ditterently arranged so that, 

for instance,, everything on Communist ~hina does not tall below priori'ties 

on anztbinLiD the USSR. 1be list woold be broken crown inw three major 

categories covering highest pri.orit7, high priorit7, and priorit,y it.as 

with objectives tor &JV' area sprinlcl.ed throughout the three categories 

depending upon the importance of the 1.t• to nat.ional. securi:ty' needao The 

la.Dguage of the objeet1ves would be as specific as possible tor a document 

of this t;,vpe, to insure its accurate application within BSA.. It muld not,, 

however, employ technical C<JUft tendnoloa, thus becaning outdated rapidly. 

Items would be listed in as nearly absolute priority as possible, to insure 

that basic priority· deteminations which Dl118t be made, are made by USCIB 

rather than RSA. Entries such as the to.Llowing 110uld be used: 

The CCID:llT Object.ives List shoul.d be designed to remain valid &a/long u 

possible, excluding items oi" the tempor&r7 high priority or cr8.$h t1P8• 

!he Prillar7 pvpo.se ot the Objectives List would be to determine the 

allocation of res~rces to problems b7 &. 

EO 3 . 3 ( h) ( 2 ) 

PL 86-36/50 USC 3605 

SECRE'f' 
Tti.e se'tting of COMIN'l objectives is ot such importance that it 

must be viewed as an eseenfull7 non-d.eJ.egabJ.e responai.bility Of' the Board 

aenbers. 11le ClOMIJIT objectives .List must be approved by USCIB itself. 

Thia is te•.aibl.e in that USCIB is ;n.ot required to produce a new doC1111ent 

bu't rather to deJ.ete and re-arrange itau in rm. existing JAC paper. It is 

also essential. that this job be done by U1e Board itaelt in that it can be 

done ODl7 in the knowledge of the ~apabil1t1es of non-OCKI.NT sources of 

intelligence. USCIB wouJ..d set the prior.it7 order ot the objectives wit.bin 

the major breakdowns. Subordinate bodies or USCJB euch as the Intelligence 

Cc•d.:ttee trequent.J.T have a8 their representatives members .trm the mMDT 

rather thlm intelligence collllmDitJ' who are not necessari~ equipped to make 

recoanendatiom concerning the status of all inwlligence sources in their 

departments. 

Detailed Beauirements List ..... ---- 'lid.a muld be the BEI ot tbe C<llIIT buaiuess baaed upon the Intelligence targets which 1JSC!B bad decided to pursue. Ccmtrasted to the present 

encyclopedi.c ccxnr.r information requiremnts, it. would rm to sane i.5 ... 20 

pages and attempt to describe 1n intelligence terms the tJP8s oi- inf'ormation neecled to satisf'T the stated objectives. For example, 

This Detailed Requirements U.st would be developed through cl.ose consul tation bY' representatives oE the other USCZ:B agencies and NSA so that 

it would represent tbs best expression of uers•needa and producers• 

capabilities. In.rormation known to be within the technical capability ot 

HS! to produce, but not required on a continuing basis because or ita relative priorJ.t)" or its ava1labilit7 from other sources, should be J.1ated in 

a J.ov priont7 or 1n a non-desired supp.Lament. As opposed to the .Objectives 

List9 which determines allocation of resources to probl.ems, the Requirements 

I.a.st would detel'lline the continuing production ot BSA.. 

Botb ot tbese documents should be approved by USClB as a package so 

that t.he7 are clearq consistent with om anot.mr, wit.Ii the intent of t.lle 

Board• and useable b7 the Director, RSA.. 

EO 3 . 3 ( h) ( 2 ) 

PL 86-36/50 USC 3605 

-3-

SECRET 
• 

2. BIU. lMPIDEll!IBG coon PUB 

lJ]p to this point the COOR? Objectives List would be established 

excl.usivel.v b7 users and the Detailed llequireMnts tist cooperativel.J' 

produced b;r u.aers and producers. llov tbat 11SOlB had decJ.ared 11iaeil' on 

CCIWIT priorities,, the producers lll1l8t do wbat tba7 e1one can do--tr8D8-

.tom tbea :i.D1io collection and processing directives. Once the Board had 

stated vnat was wanted,, BSA. would decide how to use its facilities. It 

would be El •s responaibU1ty to proc1Uce an Jiilpl.eMnting C<lllft PJ.an,, 

assigning u. s. COMitrr cover by na:tiona.Li tJ', aerv1ce and case mmber and 

&Llocating tra.tfic ana.J.pta,, crn>tanalJ'sts,, linguists and reporting 

o£ftcera b:r target. 'lhis plan woul.d be moditied onl7 as C<Jnft require-

•nts are 1n.'ldified or significant techn:lcal changes occur. 8'lch a pJ.an 

m.uat also accamodat.A certain taska which might not be expressq stated 

in the reqairem.ents .lia't but on which,, tor technical purposes or ccmtumi tJ' insurance, an et.tort aust be min1iained. It must be recognised, 

tor instance,, that while current outpo1i on Guatemala mq not be neceBs817,, 

the abili v to produce usetul int:orma:tion in an eaergenc7 should exist. 

A.Lao that a studT ot certain foreign comumcations practices mq be 

desirable al.though there 1• no illnediate need tor or prospect ot end.-

product. 

Such a pl.an, one• approved, would set the pattern tor ISl 

COMDT operations, providing a s01D1C1 basis on which tr~ cOllllllUDicationa. l.oglstics, personnel. 'B./D and other acti'ri.ties couJ.d be planned. 

J.t would provide a basis ror llSA. requests tor additional. personnel or 

facilities to accmplish certain tasks, or tor HsA. :intoning the Board 

that certain objectives could not be satis.t':1ed. 

,. ~bt requirements structure described thus £ar is designed to 

provide fell' an authoritative source ot requiranents expressed in understandable terms and td.thin mutuall1' agreed lir.d.ts. stating what is required anc1 J.eaving to 'the producer the decision as to how resources Will 

be used tc> provicte the immediate and long-tel"Jll answers. But it does not 

pravide for current fiexibilit7. 

An ettectiive coon requireaen1is stl"llCture must recognize that 

no J.ist is totaJ.ly adequate. that situations and therefore requirement& aiange., tJ'iat tecbni.cal devel.opnen1iS .likewise change and have an impact 

on uswere to requirements 8IJd ul'liimateq on the requirements and objectives themselves. It is obvious that a current requirements mecha ... Di• must be estab.i.isbed that is (a) authoritative and (b) rapid. 

-4-

SECltET 
, REF ID:A57363 A 

SECRET • 

Consuar Pane.ls 

Consumer Panels should. be estabJ.1.ebed-set up by or tor each of 

the CCl!DlT cons'Ulller ageneies--tc innre that there is a real understanding 

within BSA oi" the needs and pJ.aDS ot the Agency concerned in terms of 

CCllIIT reqairements, ancl a similar understanding of COID'l capabil1ties and 

J.:lmitations in tull8 ct that Apnc7•s needs. Panel& .should be staffed b7 

persons authorized to represent the intelligence needs of their department 

or agenq, and NSA representatives responsible tor their tult1J.l.-nt. 

Panels would meet aontbq or more often as required, and would 

discuss current COMINT requirements (as at present, requirsents desks 

would handle spot requirements passed through nomai .liaison chazmels). 

l't would ba essential to e.ttec"tive opra'tion of 1ihese panels that participants discuss in neceasa17 detail the factors underlying intelligence 

mede and tecJmica.l capabilities and J.illitat10118. Conclusions reached 

by these panels, which would not be identicall.1' set up or run, woul.d 

be promptq circula.ted to other panel.8 and to a senior cmlld. ttee so tha't 

conflicts would be avoided. 

The consumer panels 10uld be the basic el•ent ot an effective 

requiraneate structure. It is here that the dJDaldc probJ.em ot requiremnt& and technical. successes 11D11l.d be handled ini.tia.Jl.71 b7 .f'ace-to-tace 

discussions emcmg well int'omed. persons. 

MUJ.ti-La.te:ral. Resol.ution ok CcmO.ictl!I 

A senior pane! or camnd.ttee would be necessary to pert'om the 

tuncti.ODS ot (a) initiating neceaaa17 alterations to estabJ.iahed priorities 

to avoid o:r reconcile cont.Licta, and (b) 1Dit:1ating 8117 necessary priorities 

revisions :ln reaction to sign11'1can1i inte111gence or C<l!INT tecbnical. 

clevel.opnen:te. This group wou1cl insure tbe naaeasa17 fJ.ezibili ty to adjust 

to changing situation • 

.h. CONTINUING DD'LEMEHTATIOH BY BS& 

Based upon the approved Kaster COHift Iillplm.ent:lng P.a.u, discussions within the consmner panels,, and senior canmittee actions, contimling refiDements and modifications to collection am processing 

directives wau.Ld be necessary. To acccmplish this, BSA probabi.7 110uld 

need to es·tabli.sh "COONT Technica1 Impl.mentation Canmittee. 'lhia 

group woulci receive the renlts ot each cmaumer panel and senior commi"ttee meeting. In tlJe light; 0£ the DaPJ.ementing P.LaD.1 the panel discusaiona, 1::ammittee actions, and intOl'Dlati.on provided by the production 

units, it wou:Ld initiat.e necessary adjuetaents. '.l:hese would be effected 

through in·tegrated collection and processing d:f.recti ves. Holders of the 

basic :impl.1menting plan wmld receive these ••endllents• to the p.Lan so 

tbat train.i.ng, .logistics, personnel., R/D and ccmnunications planning 

110uld cont:llme relevant to current and tutu.re needs. 

-5-

SECRET 
Consumer 

Responsibility ---

Consumer/ 

Producer ---------

Consumer/ 

Producer --------

Producer 

Responsibility ---

REF ID:A57363 I- _, ,_ ~ ..... ,,,,..,, ................ ilncnn1 "-- 1 

Chart A 

lROPOSED NATIONAL COMINT REQUIREMENTS STRUCTURE 

Periodic 

Reguirements 

' r 

COMINT Objectives 

List 

Detailed Requirements List 

NSA COMINT Imple- menting Plan 

Current 

Reg,uirements I I 

! 

r 

t 

I 

' 

-' ' 

Conswner 

Panels 

Senior Committee 

NSA COMINT 

Technical 

Implementation 

Committee 

SECR-ET 

Spot 

Reg,ui.rements I 

t 

Conswner 

Liaison 

Office 

NSA COMINT 

Technical 

Implementation 

Committee 
• 

REF ID:A57363 

SEC'REf' 9 

CURRENT FRIORI'l'IES STRUCTURE 

I lfaater Requirements List 

l. Prepared by Intelligence Cmte. 

2. Soviet - Non-Soviet breakdown. 

3• Ten pages., 4. Bot selective. 

S. Ineffective. 

Intormation Requirements 

I 

6. Bot considered by' USCIB. 

7. Sections written in Collection 

Terms. 

8. Over 400 pages. 

9. Cannot. e:l~f ectively' be applied 

by NSA. 

l BSA Requireaenta.Office 

lO. Exclusive requirements channel; 

lind.ted authority to make Agenc7 

decisions. 

I Cousumei-·-Li_ai __ s_o_n ________ _ 

u. Exclusive Liaison channel.; limi~ed aut.hority to make .Ageney 

decision&. 

12. COMIRT consid.erati.ons onl.1'. 

l..3• No meeting o~ counterparts. 

SECRET 

Chart B 

HtOPOSED HlicmTIES STRUCTURE 

COMINT Objectives List 

l. Prepared by USCIB from National 

prototype. 

2. Breakdown b7 priority importance, 

regardless of country. 3. Five pages. 4. Tailored to COMINT. S. Determines allocation of 

Production Resources. 

Detailed Requirements List 

..._----~~~--~--------- ~ 

6. Approved b7 USCIB. 

7. 1ir:l. tten in intelligence terms. 

a. Twenty pages. 

9. Definitive priori t.ies govern 

continuing 'COHrNT output. 

NSA Requirements Office 

10. Limited requirements channel; 

limited authorit.y to make 

AgellCJ" decisions. 

Consumer Liaison 

ll. Liaison channel; limited 

authority to make AgeDC1' 

decisions. 
.. 

ClJRRENT l'RICJtITIES STRUCTURE 

General Pl:-:Lori ties Committee 

Processing Priorities Committee 

Intercept; Priorities Coaatttee 

Conswn.ers engaged in teclmical 

opera·liions. 

Separate considerat.ion of inter~ 

cept and processing.priorities. 

I Report on I~ati.on 

16. No ad.equate report made or 

possi.ble in direct relation 

to MBL. 

17. No 111tormed appraisal of perf ormlnce & determination ot 

requ:tred COMrNT resources SEe. 'R-Er 

read:Lly' possib1e outside ot..I: 

Chart B 

continued 

PROPOSED PRICJUTIES STRUCTURE 

Consumer/BSA Panels 

12. Speak with authority for their 

agencies. 13. Total intelligence and technical 

considerations. 

lh. Face-to-face meeting of counterparts. 

is. 

16. 

17. 

Senior Committee 

Multilateral concern with all 

requirements laid on NSA. 

Resolve Panel conflicts. 

Initiate requirement adjustments required by technical and 

intelligence developments. 

NSA COMINT Implementation Pl.an 

-------- NSA Technical Implementation Omte. 

l.8. NSA personnel in technical 

operations. 19. Integrated view of intercept 

and processing problems. 

Report on Implementation 

20. Comprehensive Annual Report 

by NSA. 

COMI'NT Performance & Resources 

21. Informed USCIB armual review of 

COMINT pertormance & determlnation 

ot required COMINT resources. 
REF rp': ll57 363. -- '_; -.-

e-:-P-- --.... fl/"""= •• ··-:: .r-

~ ... C .... JR r • __ ... -- - ~· - - - . . -1: - -· fit:- .. ., - - . 

. - -.. *'': . .,_. . 

. ' . ~ .. 

llOth USCIB Meeting 

Item 2 VSCI:S MASTER MQUIBIMEH'rS LIM' ...... • • ... -- ; -=-- • ,_.,.,. •' ..... ! - a .5"-- r. - -- ... ... --- - - -- .. -... - . -- ~ ·-- .. -

- . -

l, _The present Maet~r Req.u1rementa List (MRL) waa approved b7 

USCIB on 3 July 19"53 and 1'orwa.rded d1r_ec~I.y to the Director, 18.A, with 

the concurrence ot ~· ~cqt1ve Agen~ .tor the production ot COOlf.r, 

aa a new approach to the problem. ot CCllI.N'! respo~e to intelligence require:nents. The Director ~ r!Q}le•ted to advise USCI.B concerning 

the ut.nt to which U.S. C~lf.I! J"J_119ur9'' .~ould bet e.a>,lied ettectivelf 

to t'ult.lll these requirement• in the Ol'"der 11ate4. (ttscl:S 5/453 and _5/~55). 

2, The .rirat ~ort by the Director on thi1- -~bject · waa airculateci · on~ J11ly 19~4 ~_USCIB 9.317. It vaa placed betore Q'SC.t:S,:C :tor i~tial 

cone1deJ:-ation,!.. PGCW.C rete;-.r-4 tt to the Intelligence Cc:ma1ttee tor ·- . •t~ and recOJ1111endatiQn8. - . ·: . •? ' - ·-· ·~ • • - ·~ - ,· ~ .. -

-- -... - .... .::-............ ~· - 4~-· .. : .. -,-~~ .... .\.._..... ·":"- .r·,... ~ .... :, ... --:._.··-; ..... "'.:.!.- .... !~,;, .. '( ... "';_" ·-~,,.- ....... ~~~rl!tr•l 

-- . .3. t'1cCM_, with the IS.A. member 11at Ve>tinS, ~orted to USCIBEC • -

that tJ11r ~eport ~1le. containing data ~ the Curr!Jllt •~tWJ of exploi tat1on, . Md not provide the tn>~ ot _1ntormat1on that 1a req,uired ~or an adequate 

1UM!,er1tl!i.ncU.us ot the preeent and potential. cepab1l:l.t1ea ot u.s. resources 

·- 't9 e~t~!:tf y!.~· c._oo~ r"quirementa (USCIB 9.3/8). Vote aheet replies 

intU.caterd. tblJt NBA dea1red to have the entire matter considered by USCIB, 

vh1l..e Ql'A recOJJJlle-nded that USCIEEC_col)81der the question of periodic 

reports by the Director, BSA, and the material. which auoh re.ports ishOuld cont~n.. (UfiCIB 9.4/1~). -- , ~ · -·- : .::~·. · · · ~.:-- :: .2.·~~~- r - • •• "r - • • I .,,. .. ... - .... "' • ... ,.,. I if ~ I 'I ., ," P II • 'oC • ~ .!" 

· - 4: UscI_,··9.31'u ot 4 ~vember 1954 ci:rc\\lat~. a JRemOralulum in 1fh1ch 

thc:i Direc1;Qr; llSA, set- torth h:I:_• v;~· on ~e *•· i'.h.eae ~ee p01nta. ver•. 

atre11seda _ • • . . --·---·- ~: .. -, -- ••· ! • • . 

•= .-... .. - .-..-~~-- .~V.s_ .. -- :....: - I. •-;~._ ... •;, : ~ •• .'"'.., • "'• ~ '•T • .... _,~: ~ -IP II •. -:· I~".'.:::.,. - • -' -

~. -~. ~~~ ~- ., ···::-~~~-· ~- ~~- r~t ~r~e~. ~~ ~~~~~~~~~:~~:;~~~~~ai. ~·~~ii-1~i,' -~·. -~·~·. ;~~ .,.,. T :111 .. -.J _. • ,. '"'*A - • ,,_. c- ... '--T .. ~ '#" - .. ~ • :. ~ - -f i - .. .. .. J. • - ' .. r - j//p~~· A•) 

• -=-- • Tr ........ t I • • • : 1 - "• - • "" ' " "' ~ 1 - • • - J ..&. ... ~ 

· ·· -- b.-·-kaaly~ items ot the ¥IUc ~e i;hrued in •uch aenerat terms that 

~dan.~! 1.--:~t~~1 .. ~._11patedJ ~--.: _ _ _ .., ~ ,.•. '\ • 

' ' .- ' - .. ~.: 

' . ' 
lt .:' _ .. ,-. • .. •• - .. \ 

-.... .. .. -..--· . - -- -- • _;· •• • .. :..!=.-"" ..... 'tt,"iP' 

-. : • ~ .. ~~I • - ,i .t.- .. 

-.,_..,.. ""f" · 7 --- -- -- (=11 - .. _ .. -,"":.=::.·- .. ~ .. -• .. ..., t•I -.. ... • -.. • •c~ - r•,: - . .. .. ~::. .... ---· ""'!! .... "'.; -

-_. .... "" • .. --.. , • • I I • • " -

... - ....... -.. -. .. •'\.-, 

~ .. _ • .& .. 

,,'I.· •.•• 

.. .. - .............. 

.. . ~ - ., .. & -.II 

-· , ...... 

..... ":,\. '.:.·· 

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... -- . :; . - { 

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- .... ,, ...-~ ,. t::. f .. . . . , -~S· USCIB 9.'3116 ~t 3 December 1954 Circulates a memol'aridum 'b;y the 

·-OSD member a-which be atates hie wholehearted S(tf'~t -"1th the views 

• _t·-~ Aa-''!" r-- "'\• __ ,. - - .......... ., 

- o? the Director, 1'SA on the MBL. The memorandum recogo.1ze11 certain aet1 .. ciencfe·a in '\:.he present MRL end eeta forth the easenti&l ingredients which 

the OSD 111ember believes should be included 1n &n1 adequate ~equ!rements 

mechanism. ~ey a.re aa tollowi .-- _ . : ·.- -- - ·- . ..... :-,.;---... ~ _,;;: .. ·_ - - : • ... ,,, --=- •lllt- - • - I' - - .. ..- ·- .. I .. ':. - I - .. - - - .. -~ .. ~-

· -. ;_ --.• :- -:Saa1_c ¢dance --tor·-~·-u.s~~cattn!''e:tfort 8JioUid originate .. 'tltb. a-at.ate.ment ot the objeetivea ot that ettort. Theao COO?fl' objectives _ _ lhould -~: cqnsiatent ~th and., in tact, Jl1Wlt be derived. from the over ... all 

_national intell:lgence ·obJectives. -·- · "_ _~· · -· • . ,, : _ ·:. · ... ~~ 

; •0 • ... • .. _1 •,. ,·I ......... -; j_ \ •":• -;.._~!..-~ •• -", :_;,- -~ _: ... :.~.,-. Tat=--• ::"I· a • I ~ ""r I .. o!K !;_ ~~ 

~ • {.,> - - ;,;. _'l'berit'' celttlT' obJectivea JllUllt ·dictate the basic al.location ot .. :Wu.a. re1iourci~I-jga.inlt :toreip COOHT problems and goVex-n the output~ of '·. ' ........ . 

the ettoJ:'t •o allocated. . . · . . ~-- · · ·.- · : . . - · .. ... "Ns"' ... .. •• • •• "'• • -"-;,• 1.1' •• 11!. -_" •: ~- • •,.'I, .,

1 

.,. • : ....... ·, • ... : ':S_. •• • -... I .......... "{!'~ • -:..:! 

. c~·~·:·~ic_ -.,:iilance ihua'\1

' ~~igliiate' ~ta path~·~ l.~r· than USctt)f -.. y- ·~{_ :·. 

tt11"1:t and bi 94dress~ to the Director / BSA. __ · . · _ . ~ 

--. · --: ~ . - ~- ~~;_~·-:~ch aui~~cie ~~ -~~- Ji~:~ 1ilcci~c~~ ~~~uf 1~ci~~~hc,i~ · .- _ -- __ · ~· _ - and ;oequ.1r" ·a.minimum ot oon-technical. interpretation by BSA. . 

. ,_• :·~ ~~~~i~~-~i -1,~-:~~- -to1-tiex~btl iti· 1fi·:.~;;_.~Ina . .-ki.~ . . .~-~-~;# · ~ ;.=~-~~ ~dan~e ~o meet current intelligence and teclmical. developnents ea they-

• 'Jlr.iae. .. ·-'" -· ·;.~ ~ ~p· ---~ •• -· - •• 

!. I r -, .. : .-""'~~~~· -~ -.-...:.__...;;-'! .. _\?~. : :_ I J°";&: - ... • : .. ;-•.:::,_ ¥.. ~ ::.- ::.:~_.11 ~_. .. ,._..;... , ~ H - • .... ._. 

-· -· _ ·. t~ _--It JiiU!t -~ clearij''"recop_ised 'i;ha.t, 'Cfs9'.fi iii!c!Atice emounta .. -- . '· -. ~-

to ~a.tioli&l. oro,era_ which ISA muat obq. - · - • I & • ~-- .-.. •• ~·- I • ' .. ~ -. ;.:i I •I : I ...... •i!: ~ I I 'I • .~ t" I..:-• .! .. 'ffl • • I ........ I ' ,_ '.... p .#If 'J':i:...:!:.:. • • 

. -.....--~- ~.:...,.,-; -msA.·eliOuld FeJ>ai.'re a ciear aiid unAer~ble!"°li.miuB.1. PrOsreal"'' .-..!:.- ~ 

re;pOrt -t.o USCIB concerning contOrmity with, and tullillment ot, the guidance- · 

*'c·~ v~; the basic al.location ot coazn resources J and an estimate ot the ~!or~ -~sources recfUire4 to enhance tuU'illment ot the caan object:f.vea' _ .. ~ ~--~-- --= ..... .,, ___ -...... ... : .. ~ -. .... ! .a.-,::. _ .. r:,-l- _ .;i~ ,.. , ... -:;~ .. -.. ...: .. ., •.1 ,,,.. _ ... _- .. , • ;~~a;,_..t~··~" 

- .. _, . b. ·: lliez:"")t~ -~t 'thi• amiUal. "report; osct:S mtiat adVtae the . .'lationaJ. lxeeuti"/6 Agent as to-What· -reaourcei' :S.t <!olilid.era ahould be mad~ 

-·aya!lable tor . COOif! prodU9i1on in the comiris ;ve8". · .... I :, ..... ::Z"""i "II'\. ..... I~ I .I :-;;::.--·~ I .~ .. - t• - ... IJI I II' I .. _,,.' 

: -~~·, .. ~. ~-a ~oi;is~ti'V!t ~~ep towat"d estabitahment oi aucli a me~ism .~,- :;..?-..-

u O\ltI:Lned in ia.ra·~- 5 a"boVe; -EhirO!nmember'a memotoandum incloses a ·- - · •-·15ape:r ei1titled 1'a.t1ona1 COOR'! :R.equ1rementa Structure". The paper is 

divided into aeveral aec~i9~ Wbich'are diacusaed below. 

__ : .. ~ 

. . -~ --.. -· I • • ~.... .: .. -- rr ,.., G'.-r ~ ~ ... • ""• :;:..',.. ... 

:·~;:_ "II ~-! 4•'-"""' .. ...,. • .. """' -::1.." ; , .... - ... 

,.. - -·- -- :. ~ 

• - r .. r,. -. - "' .i.z. J ._ r • .. ,? 

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...... :z.. ... ,., 'T· .. __ .. 'fl."'!.'11 .. , ~' 

~"" . . ... ; -.~-~~-.- - · ~··~w•i..:;-.o• I I ... ~of A -··-·Ill--~'- :-"'!Ff 

- - - .. :__ - ... r., , • .la - .. I··~ •A• 

-- : .. ~·:.-=-.-:-,.·.I 

i. ~ .. -: ... 

~ -· 
.· 

... - .. ~ 

- • ... :I ,- - - ,. rr • ~• 1 • .= ... 

-. - r!' ....... --

H'!PR " .. . - Item. 2(C011t'd) . -

.. - --::- - ..... d • ,,. • "O''"' I P _.. ••• 1 • • L • I .... • ...Z ':. ........ •• 

7, Prioritiea ReapPp!ib1llty ot USCXI - The re1pone1bilit7 of USCIB 

1• to ,Providi guidilice lithe unairatiliding that it doea not "detend.ne" _ ne.O.. 'but :rather intelligentq applies &tlt!. inter,pret• them in terms of 

COOM'.t lt doe• @:t •tgenerate" requirementa bUt 11tailora11 theJJl to CCIUM'r 

realities. Ita Job, there.tore, is to exanine the mo•t reeent expression 

ot nation&l. ittteU:tgence objectl ve.- based upon current ~~lonal polic1 

and modify it ori _the bad!• ot two .:rarda"t!cka~ - II I"'"' •-=. -~ ,.. I 1,. I• .... I. 

-~- _·cooirl' ahoui4" not-be aaked ~ puraue Un&ttai:aabie target•. 

only. -A reuonable balance must be atru.olt between taraeta ottering rel.ati~ quick, it not""tiaay, reaulta ·.m tb.o•e yhich dQ not, . . -

.. -· - .· ~ ·_ ·~ ... ~, 

-- -- ;: 

· · ~·-·- pooif;r ·~~t llllo~d ~ -~~!.ct9d ~~t _t&t:iets t~r ~~~ · '~ .: ~ ... 11; ba$ a \.UitQ.uit or ~ best capa'bil.1 ty u ccn;p&red to ~~ intelligence 

aour11ce~. W•· T!i.!-~ -~pl1~•. th~ _ab1111!T ~ c~e the_ ~~r,; ·~~e~ o:f'.. _ .. inte 1-ogence. . . . : ·-

S. _Buie USCIB gutdanct woi.il.4 bo.toun.d ~ tW? doep$ents1 

-=-.,, 'I jo."I. '"' .I - ...... • 1-

' 

a. COORT Objecti vea List .. Thie wo\ll.4 be a lllQd.itiec! UC . . pr1or1t7 obJectlvea 11et. Xt vould 'bo aborter tlUui the. present_)IQI, 

- and wci·llld 'be·-ar:r«n&id d1tterent1y. It voU141ie brc.lkou t\o'Wll into three 

mll'Jor categoriee CO'Ytr1ng hi&best pr1or1ty, high prlorit;r lm4 priorit1 

items,. with o'bJec_tivee tor ~_area •J!1r1.nkled throughout the three 

catego.r!e• · ~endiZJg ~ tbe imporlance ot the item to national e~ity 

needa. 1'he pr1.Jl&e,ey purpose o~ the i:tat 'WQu14 be tQ -~t~~e the . 

&ll.ocation of reeources to :problems b1 NBA and it ahould be deaigued 

to rem.~n va:U.d ae iong aa J)(>Saible. '!he COOlll! o'bJectivea list must 

be app:roved by USCI:8 itselt, in that the •etting ot tbeae o'bjective1 

muat b·rt viewed .. an ee1enti&lly nob.-delegatable responsibility ot ~ 

Boal"d J:llelD.bera ~ · · · 1 -=· • · · · -

- .. ... ..... -

C<JCift b~ln~~tt;!;i ~:1~e:I!:efii!e:c:11~= ,!:c:1g~~ ~the deo1de1 to puraue. It would be aborter than the l>resent Intormation 

Requir•ementa and wP\lld attempt to 4eeCX"ibe in inteUigence terms the types 

ot- int·o:rinati~n· need.eel to ••tist;y the •tated obJectivee. Thie ~i"t yout! 

• :.!!If'.· .. ~- .;: 

.,,;. . .. 

• .::..;.L~ •- .. ,.r • 

............ _ 'T I -

be (!eyeJ.~ed through close consultation by N;:resentati ves ot the other -·. - ~ 

· UBCfB :a&eJiciea · and EA io tliat it Wul.4 :r8present the 'best expresa1on of 

t~ ~e~•' ne~da and)ro!ucera_1 capabil~tie~. · · · · · · • ~ ...... .., r,, I 1'4.J' • .r-- .. !'- "S ,- ... ".PT 

9. BQth.th• COOE ObJectivea Liet and the Detailed :Requirement• Lilt abould be approved by USCIB aa a·paekage ao tb&t they are el~arl.y 

cona11 tent with one another, Yi th the intent ot the Board, and wseable 

b7 the Director, ISA" 

. '. - I • ~ 

- _.... .,. 

... 

- -.- ... .: 

9 .... r "' .; ~ .. - ._-n • I 
- ~ - - -:' .... 

~- -

--

-;:::-.-_ 

# - .. ·-. 

--

--,, : I .. - I 

: .. - : 

Item 2 (Cont'd) -·· 

10, Ji! Implement!y COONT Plan - Once USOIB had._1tate4 what wu ~ wante<!; 'itSA voul4 deoide hov to uae '1 t~ ?ac111 tie•. ISA wuld be 

~.reapolUl1ble i~or producins an Implementing COONT Pl.an, aaaiping us cao:RT 

¢9V4'r. by natj,onaJ.ity, ael'."1ce ~- ~aa., lltaber ~ alloc;a1;1q ~attic 

~;vet~'- c~'Pteml.18t•, linguiata ~reporting ottice:rs by ta.re;et* 

kc:h a plan, once tlilproved, 1ft:>uld •et the pattern tor RSA CQCIHT operations, 

prov1c11ng a sound baai• ~which training, Obulm\lnicat1on1, log11t1ca, pereom:i.~11 B/D and <!~=-. ~tjl..n t,iea could be pl.armed. lt voul.4 provide ..... ,.,_.,., r,:·• b~1d •. • ~or 1·~ £!que•ts lor additional. pereomiel. or facilities to · ;:.-~ ~C:Qlllpll.b certain ta.eke, OJ." for .BSA int'orming the !oard that certain 

., 

· ~ :-:- -.'-_ 'o~J~~~i ~s .. :?~~ .!1crt .J;>e. ,_.~i•f~4l'4_- . . .~,, . . . :f, .. ' ... ,, · -.· -- : _ - , -•-.i: ~-

-- ·. ' .. r·u, Cur.rent Re9,!!!rementa - To pi'Ovide tor.current -iJ..qtbili.t7,, a 

current ~q,id':rementa iiiE!Chiiilam DlWlt be eetabi.iehed. tM.t. ia authori tat1 va 

d rap14. ~) &eC9l1tPlieh th1a,. coneumer :panel.a ahould. be ••tablished tQ 

:t.neure that there 1• a ~ undtrtt.andipg within l8A of the >leeda and plams ... t4 the agenc1 con.~tf.x'net\" in te~ or COO:lR r1qu1rementa. T.b.~se panel.a 

ltould. 'be.1fh,o l>.Mic el-.e.nt ot en ettect1Vtt requirements •tructure. It 

' 1• here th"*t 1~e ~c problem o'l re~t• and tecbnical. auccea1ea YO~ ·°' J:a~ .. ed. 1D..1 t;lally, by tace .. to•taee di1cussio?)8 8m0?1$ well inf'ormed perao~.· ~.!l~tJl!q:- :pm1~ or ccm.aittee would be necessary to {a) in1t1ate . ,.. )1ece41s~ al._te1r~t1one .to Jtltablished priori ties to •void or reccmc1le eo~c.t~, aii.d. · (b) initt•te 9.l11' ~ece11aa:ey priorities revi•iQXUI iA reaction 

,to Jiign1~caut ~t~1genc~ _or.~~~ techn~C?a+. d~~~n~! ~ ·•r ~ . _, -~ ·- - - . .. -~ 

- .. 12. · 99.s!:f.n~~~lementation bz BSA - !ued Upon the ~proved. 

~ter ~:R'l Jiiiiimeiitina Miii, dlacuaeiotUS vi thin the c~ ... IUJ~r panels,, 

d ••~oi- comm;\tee e.ct1ont1 continu~ ret1nementa lm4 modif.lcat1ona 

to ~oU.ection :IU1d proceee1n1 41rect1ve voul4 be necessary. To accaqpliah 

this, BSA_ prob.s.blf Yo~~. need tQ est&bl11h a COMil'fl' Tecbnical. Inwlementation - Committee •. ~~II .~U» ~uld receive~· :reault-e 9t ~ coM-r panel · ~ senior CCiJllittee meeting. Jreces•at7 adjuatmente 1t0uld. be :J,JU.t1ated and 

vould be etteoted through integrated collec~ion ~ procea•1ng ~reativea_. 0 r .:._ .. .;:' '," • ,.... - • • .. ~ i."' \, 'T I °:> ! • .:1 :... I • - "' I 'I,,: .. 

. 13· ~e 0SQ ~b~:i' teec.imo.end4 that U9'.U ~o 1iM eQIS~t18l . t.ngred1ent1 'Wh:lch he cw:tders neceseaey tor ~ Cid.equate COMINT ~quirements JDOehan11m1 and forwe:r4 the:ra to USCIUC tor :S.ts guidauce with instruct1ona 

to prepare the nece1t1a.r,y detailed papers ~r .'Boal'4 approval.. In ~ t~on .. he ~CQ!!J!Dends that the 1nclQlec1 draft in a national. C(J(Ift :Requirement& 

strUct,μ.e be '.tQrwai-~ :tJ> l1aQl!EC to be used al a p0'1nt o-r· departure in 

prepariq it• recomen~atj.QIUI, The tbougb1i bo~ ~s that USCIBEC •hou14 

prepare tor loard~roval & ~aper setting forth 1 ta reeomnendat1ol)JJ. :tor 

atl iftective llati .COOl'l' ;Requirements Mechan!.'111 to r~ce the .Present -.cir. ·-~ . •.=a .... - ·- ~ -,:·-~---·-_ .. , ..... ...: ··11 ....... ,.). __ .,. •4'f"'"1.,. ..... _ ·~_-' .. ·:!~- .l'K'll .: .... - . ~ ...... 1.. - ~ - ~ 

. -- -,;·~c-.·:~-: _ :_> _j _:.~ _:-: ~- :?·:>J;~ _: ~;-,~:, . -" __ -;.:· \ o - -"-' • 

.. ... ~ .... ··.!!.~'~·r· -~, .. ~· ·:-~ . :·· ~ ... ~-·- .-·· . .., ... :.: , 

. - ~S:*:Cn:.!. · · ~ -. ·- - . - - ~· .-
... -. "='' 41 .. __ .... f! 

-.-... · 

.... -r .... \ ,• ·~ 

. - .... _ ·'.r -r- • 

- ' - - Ittm -2 (Contid) •' . 

14. It- ia to be ooted. that the 081') memorandum With its tilclosure 

was: circulated to the Service Seoretarie• and th• JCS prior ·to ite 

au"tm1a1i1on to USCIB. l\epl1•• were generally ?Mm•caaittal., :recamnending 

the.t the matter could beat be d:l.•Queeed iii uacx:e. b:re qav, been lrl,nts, 

h01i"eVer, that questions vill be raised as to the degree ot authori t;v - .. .. • - 'Ill -

ot the Consumer Panela. .. -- ... . . ~- _. ""- --1 

- 15. It 1• hoped that the members of USClB will indo:tse the n e111•ent1ai - ~-

1ne;redienta" 1&14 down 'by the OSD member. It i1 believed likely that ·- tha1y vill accept th• ti.rat two aectiona ot hi• proposed" "lfit.tional COOlfr Re~llirementa ·strq.cture", via. P1•toritiea Re•.»<>naibllitie• of tfSCIB and 

th§! JM..lDJ»lement:tns COO:tr.r Pun. The third cmd to\U"th Qctctiorus ~a;J.:t.ng 

-With Current Requ1remente and Con1;1iiuing Implementation by I~ are ·likelf 

to brUis forth considerable d!•cua1:1ou, especial.~ 1.n connection with - -~Q· CQmi'l.ll04~ J'§l).F:l•· 

:r 

m:c<MfENDATI01' · ____,..,.. CS J>E -'U 

.. -... .,, , . ' 

~ .. +. 

- , . 16. It ia rec-:aded tbat the lfSA member endore~. the OSD nwmber '• 

prcpoee.l tor a lfo,tional. COO?fr Requiranents mechanism to replace the 

... ..! 

_;pr~aent MRL. -; _ · · - ~ " · · · 

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