Central Intelligence Agency Inspector General mus - Inna IG 2000-0009-IN 33 12 AP ROVE FO RELEASE DATE INSPECTION REPORT OF THE 1 DCI COUNTERTERRORIST CENTER DIRECTORATE OF OPERATIONS AUGUST 2001 1 gnu- I IG-2001-0513 22 August 2001 MEMORANDUM FOR Deputy Director for Operations Deputy Director for Intelligence Chief Counterterrorist Center FROM ACting inspeCLur ocucral SUBJECT Inspection Report of the Uti tounterterrorist Center 1 Attached is the final report of our inspecti or tne DCI Counterterrorist Center The three recommendations are the same as those contained in the draft report you reviewed Based on the formal comments we have changed the text or in cases where we did not agree identified and included the comments italicized as part of the text I will assume your concurrence unless I hear from you within 10 days Please note that the recommendations will be included in our semiannual report to the DCI 2 Please forward to me within 60 days a formal rtpv_- forth the actions taken to implement the recommendations and or a timetable for eventual full implementation 3 If you have additional observations or comments about this inspection or any related matters please feel free to contact my Acting Deputy the Assistant Inspector General for Inspections or me signed Attachment As stated CC Downgrade to when separated from attachment SUBJECT Inspection Report of the DCI sou rrorist Center 20 August 2001 FILE Distribution Original DCI Counterterrorist Center M0 Table of Contents Executive Highlights Introduction 1 CTC and the DO 4 Operations to Counter Terrorism 4 9 1 Relations W1tn Stations 13 Collection and Reporting 18 Counterintelligence and Security 20 Analysis 22 The Role of Analysis 22 Customer Reaction 24 Analytic Concerns 26 Surge and Information Exploitation Management 28 Crisis Management 28 Exploitation of Data 28 Community Role 32 External Operational Partnerships 34 Federal Bureau of Investigation 36 Department of Defense 37 Department of State 38 August 2001 i m DCI Counterterrorist Center CTC Leadership and Management Issues 39 Mission 39 Quality of Leadership and Management 40 Funding 42 Staffing 44 Skills Mix Issues 46 Managing Contractors 51 Diversity Issues 53 TABS FINDINGS AND RECOMMENDATIONS SCOPE AND METHODOLOGY EMPLOYEE OPINION SURVEY ii August 2001 DCI Counterterrorist Center EXECUTIVE HIGHLIGHTS The DCI Counterterrorist Center CTC is a well- managed component that successfully carries out the Agency s counterterrorist responsibilities to collect and analyze intelligence on international terrorism and to undermine the capabilities of terrorist groups CTC fulfills inter-Agency responsibilities for the DCI by coordinating national intelligence providing warning and promoting the effective use of Intelligence Community resources on terrorism issues The Center has made progress on problems identified at the time of the last inspection in 1994 specifically its professional relationship with the Federal Bureau of Investigation Indeed since 1994 the Center has broadened and deepened its operational partnerships with other US Government organizations working the terrorist target through an increased exchange of personnel and information CTC owes its success to a number of factors 0 CTC employees clearly understand their mission and believe their work is vital to saving American lives This sense of mission and belief in its importance and its success have helped to create what customers partners and CTC employees describe as a highly dedicated and motivated workforce which produces quality work resources have steadily increased over the years with personnel growing urmg that period and the budget he Center s comparatively favorable resource Situation allows it not only to expand its own programs but also to support operations ihat DO area divisions otherwise could not fund The OIG cautions however that in recent years most of the increase in budget has come in the form of supplemental funding which is unpredictable August 2001 DCI Counterterrorist Center 0 Center employees have earned strong customer support Customers describe CTC as the leading source of expertise on terrorism responsive to requirements and a community facilitator 0 Customers partners senior Agency managers and Center employees credit the strong front office management team with articulating a clear vision and strategy and implementing an effective program against a difficult target Although CTC received generally positive revieWs customers did identify some gaps Military and diplomatic security customers are seeking detailed information on the plans and intentions of key terrorist groups and timely warning of terrorist attacks with specifics on target date and place Customers are concerned that not enough work to provide context for policy decisions is getting done because reports officers are under pressure to disseminate threat reporting quickly and have time only to focus on crises or other short-term demands Some consumers worry that Center do not have the time to spot trends or to knit together the threads from the ood of information After reviewing the Center s capabilities current manage ent is trying to increase collection of actionable information the reporting gap identified by consumers The senior management team determined that to be successful against key targets requires an operational strategy that places an increased emphasis on recruitment and penetration of key terrorist organizations traditional clandestine methods unilateral operations ETC statistics suggest that it is having some SUCCESS iv August 2001 DCI Counterterrorist Center W Although CTC has increased its emphasis on unilateral operations a key component of the center s operational effort is he relationship with foreign liaison services gi f J CTC management faces additional challenges in fulfilling its mission recruiting and retaining a skilled workforce managing demands and crises to guard against burnout and to allow more strategic work and coordinating and communicating internally and externally Many of these challenges result from the complex shifting and high- profile nature of the target and from customer expectations that allow little room for error Center managers are aware of and focused on most of these issues Workforce The Center has had difficulty attracting and retaining a sufficient cadre of trained experienced officers required for the new operational strategy and strategic analysis customers partners and managers have identified some areas of inexperience among both operations and analytic officers The Center has made a concerted effort to August 2001 DCI Counterterrorist Center attract and retain talented officers largely throu home- basing A number of CTC managers and officers expressed concerns about career gui ance an raining and ill-defined career paths CTC management described several developmental issues that they are starting to address but the OIG recommends a more systematic approach to include detailed written career guidance for each discrete CTC home-based occupation Stressful Work Environment Center employees frequently operate in a state of crisisw resulting from a series of terrorist incidents and multiple known threats and amidst strong demands from policymakers and Agency senior managers Moreover a substantial proportion of CTC personnel believe that their work unit does not have sufficient personnel to accomplish the mission This combination leads to employee burnout and leaves little time for strategic re ection on both analysis and operations potentially leading to missed opportunities Employees told us that they deal with this situation by working extra hours and frequently they have time for only the most essential tasks Center officers noted that management is sensitive to this issue Without more personnel however the OIG accepts that CTC has limited options to deal with this work environment the center is nearly fully staffed and crises are part of the nature of the target My Vi August 2001 DCI Counterterrorist Center Communication and Coordination The Center brings an gency focus to an important transnational target requiring close cooperation with units in all directorates particularly the area divisions in the DO Interviews of area division and station officers indicated a need for closer communication and coordination Such interaction is critical because CTC is the repository of counterterrorist resources prov1ded to the area a1v151ons and new Stations on which CTC depends to conduct much of its operational business The OIG suggests that CTC management find opportunities to engage in a more active dialogue with DO area division management Similarly we found that CTC was not taklng full advantage of resources available in the D1 The Center could increase the effectiveness of its analytic resources and gain more regional expertise by fostering stronger relationships with DI regional offices While CTC employees were generally pleased w1th front office managers a number of the interviewees who commented on their management style acknowledged that Center personnel saw little of the chief and deputies They noted that in the fast-paced and stressful work environment employees desired simple affirmation of a job well done from their managers Almost all the interviewees recognized the increasing demands placed on the Center s senior management by external and internal customers as well as the logistical challenges presented by a large workforce August 2001 vii DCI Counterterrorist Center Nevertheless the OIG encourages all front of ce managers to make interaction with center personnel a higher priority August 2001 DCI Counterterrorist Center W INTRODUCTION The DCI Counterterrorist Center CTC was formed in 1986 as a result of perceptions that terrorist incidents were increasing and that counterterrorist efforts required focus see figure 1 CTC operates under the Director of Central Intelligence DCI but resides in the Directorate of Operations DO for administrative purposes It performs the counterterrorist responsibilities that Presidential Decision Directives and -62 assign to the Agency The Center oversees a comprehensive counterterrorist operations program to collect intelligence on and minimize the capabilities of international terrorist groups and state sponsors and produces all-source analysis on international terrorism This Center brings an Agency and Community focus to a Tier One transnational target and has received steadily increasing resources to address this issue see figure 2 The nature of the target and the breadth of the Center s scope requires CTC to cooperate closely with units in all four directorates particularly the area divisions in the DO 1 CTC fulfills inter-Agency responsibilities for the DCI by coordinating national intelligence providing warning and promoting the effective use of Intelligence Community resources on terrorism issues Presidential Decision Directive ranks counterterrorism as a Tier One objective August 2001 1 DCI Counterterrorist Center Figure 2 ETC operates in a challenging environment in Whic arget has become more complex and the potential consequences of terrorist attacks more deadly than in previous decades Terrorists are growing less dependent on state sponsorship and instead are forming loose transnational affiliations based on ideology or theology 2 August 2001 DCI Counterterrorist Center MIN Originally organized into groups terrorist organizations have become decentralized Their funding and logistical networks cross borders and they make use of Widely available technology to communicate quickly and securely As a result of these trends terrorists are difficult to detect and track and traditional tools to counter them diplomatic activities economic sanctions and military actions are less effective August 2001 DCI Counterterrorist Center U CTC AND THE DO CTC management s operational focus is to develop a stronger unilateral effort to penetrate terrorist organizations in kev areas maintain strong foreign liaison relationshi While CTC gets generally good rev1ews rom ie stations and area divisions better coordination on strategy and operations could improve these relationships and the effectiveness of the Center U Operations to Counter Terrorism CTC has had some recent notable successes in a thwarting terrorists plans 0 Millennium Threat In collaboration with US law enforcement and foreign intelligence and law enforcement agencies CTC orchestrated a global effort against Usama Bin Ladin 7 CTC working with multiple stations and serv1ces 1 entified and detained or arrested This disruption prevented attacks against Ub interests according to CTC In late 2000 CTC worked with its DO and foreign partners to identify and disruptf 4 August 2001 DCI Counterterrorist Center The current CTC senior management team determin a mat success against keV targets such as Usama Bin Laden required increased emphasis on recruitment and penetration of key terrorist organizations by traditional clandestine methods -unilateral operations ey iaison services August 2001 DCI Counterterrorist Center 0 To increase the number of operations officers available to serve overseas CTC plans to home-base officers from each Clandestine ervice rainees CST graduating class CTC received officers from the Moreover CTC managementlau ncl e aJ irect 1r1ng campaign to employ officers with special skills native uency in languages 6 August 2001 DCI Counterterrorist Center The Center developed a counterterrorist focused operations course specifically tailored for officers undertaking CTC activities in the field In addition CTC realized the need to communicate its new operational strate uarters and the field field officers interviewed were familiar with new operational strategy August 2001 7 DCI Counterterrorist Center CTC statistics suggest that 1t 15 havmg some SUCCESS 8 August 2001 DCI Counterterrorist Center As CTC continues to implemeni HG suggests that CTC management find opportunities to engage in a more active dialogue with DO area division management August 2001 9 DCI Counterterrorist Center 10 August 2001 DCI Counterterrorist Center ET August 2001 11 DCI Counterterrorist Center 12 August 2001 DCI Counterterrorist Center CTC Relations with DO Stations About two-thirds of field officers interviewed praised for the assistance it provides especially during high visibility events August 2001 13 DCI Counterterrorist Center Stations were particularly pleased that the Center s financial assistance allows them to conduct operations home divisions could not fund see gure 4 Usama Bin Laden UBL Station was frequently singled out for its exceptional support Field officers described the assistance as excellent timely forward leaning and substantive One manager marveled at UBL Station s ability to respond immediately during fast moving situations Station personnel consistently appreciated analysis and background information provided by Stations visited by the team hi hl valued training provided by CTC Station officers praised CTC employees who traveled overseas to brief and discuss counterterrorist issues BBSREIH 14 August 2001 DCI Counterterrorist Center Figure 4 CTC FUNDING TO OTHER DO DIVISIONS FY 2000 The remaining one-third of field interviewees noted some shortcomings ran in from fairl isolated incidents to broader concerns more requent comp aint was slow or missin responses Most interv1ewees were qu1c1 to pomt out that was usually responsive to urgent requests but routine queries sometimes fell through the cracks They usually attributed this to an overworked staff that was busy putting August 2001 15 DCI Counterterrorist Center survey of Headquarters customers and partners mirrors field response Seventy percent of DO respondents were satisfied with their interaction with CTC and 78 percent rated the overall quality of the work relationship as good or excellent Thirty four percent of the DO respondents however had specific criticisms to offer When asked how CTC could be more responsive to customer partner needs survey respondents most frequently commented that the Center needed better coordination SEC 16 August 2001 DCI Counterterrorist Center WA August 2001 17 DCI Counterterrorist Center U Collection and Reporting Counterterrorism has high priority and at several stations this objective is a primary driver ffhis emphasis as well as resources directed at the target has paid dividends in terms of the number and quality of disseminated reports According to CTC statistics the number of disseminated reports has risen steadily since 1997 see figure 5 In addition the quality of reports has improvedi Figure 5 CT Reporting Trends 1 997 1 998 1 999 2000 This chart is classified 18 August 2001 DCI Counterterrorist Center Despite the positive reporting trends CTC management and customers identified some reporting gaps including the plans and intentions of key terrorist groups and timely warning of terrorist attacks with specifics on target time and place In particular military customers and some embassy officials stated the need for detaile information on planned attacks ptrategy is designed to close these gaps and prov1de the more predictive reporting demanded by their consumers Nevertheless the nature of the target will limit the Center s ability to collect timely warning of time place and target of attacks While supporting this effort a senior Agency manager warned that these operations require long-term commitment and discipline which can be difficult to maintain in the current atmosphere which rewards instant results Senior Agency officers were adamant that the Lenter had no choice but to follow the zero threshold approach for threat reporting all threat information is disseminated quickly threat reporting constituted Freports CTC disseminated in 2000 Almost all customers Interviewed recognized this approach as a necessary evil in the counterterrorist field but some senior August 2001 19 m DCI Counterterrorist Center customers particularly from the military complained that threat reporting r was difficult to act upon if it did not include enough spec1ally frustrating because reporting from 1 L carries tremendous weight Given the level of activity and limited resources however engages 1n a aeucate Daiancmg acr Overall Washington and field customers managers and officers give iigh marks for rapid dissemination and reaction ine group accomplishes this mission despite being chronically understaffed and many customers and partners credited this record to the dedication of the reports officers The majority of field managers and officers were satisfied with the feedback they received on their terrorist-related reporting U Counterintelligence and Security 20 August 2001 DCI Counterterrorist Center WA August 2001 21 W DCI Counterterrorist Center ANALYSIS CTC provides tactical and strategic analysis to the pohcy intelligence and law enforcement communities as well as support to operational targeting and planning Customers partners and Assessments and Information Group AIG were generally satisfied with the Center s tactical analysis but reviews were more mixed on strategic analysis with some interviewees identifying gaps in long-term research and analytical depth The Role of Analysis CTC has had an analytic component since its inception in 1986 as Agency management saw a need to centralize terrorism analysis AIG is the Center s primary source of analysis and like the rest of CTC has undergone growth and reorganization Despite these increases the group remains a relatively small part of the Center accounting for onl of the total l C workforce small size belies the critical role it plays in meet'ng tne CTC mission in AIG have a multidimensional mission that ranges from production of traditional Directorate of Intelligence DI current and longer-term analytic prodiicts to CTC-unique warning items in support of operational planning This mission is made ev -n more complicateu uy the strong demand from policymakers for support in the form of briefings specialized products and community video teleconferences as well a oy Irequent briefings to Agency senior managers and Congressional 22 August 2001 DCI Counterterrorist Center testimony Interviewees from this group characterized their customer base as broad high level and demanding Moreover AIG devote a significant amount of time to counterterrorism operations support Although and managers consistently described heir mission as a blend of analytic production and support to policymakers and involvement in operational planning a number of interviewees expressed concern about unclear priorities among the competing demands on time AIG interviewees most frequently cited lack of direction or con icting signals as the biggest obstacle to accomplishing the mission In an environment in which there is a general perception that are pressed for time they expressed the expectation that management would set clear priorities for them AIG management was viewed as vacillating between its commitment to support operations and the more traditional DI analytic functions As one analyst put it we are told the DCI and Deputy Director for Intelligence DDI want more analytic think August 2001 23 TEE-RED DCI Counterterrorist Center pieces but management has not explained what that means Others pointed out that AIG starts each year with good intentions of doing more long-term research only to have those plans scrapped by inevitable crises and short-term demands Nevertheless some of the more senior cited their disappointment at perceptions that management was attempting to emphasize long-term research at the expense of support to operations because they had been attracted to CTC by the opportunity to undertake nontraditional analysis They expressed concern that the blend of support to operations and analysis that characterizes the Center concept was declining in CTC Customer Reaction Policy-level customers generally valued CTC analysis onsumers most appreciated it when the analysis provided the needed context for decisionmaking for example appreciates the community Video teleconferences in which CTC usually takes the lead because it affords him the opportunity to have a dialogue with who have expertise and are familiar with intelligence report sourcing rated most mgniy short tinisn c1 proctucrs that Drovraea ackground information was effusive in his praise for the quality or anaivuc proauc s on a major terrorist group Natl NSC 24 August 2001 DCI Counterterrorist Center Customers were concerned that not enough work to r0v1ae context for policy decisions was getting done because focus on crises or other short-term demands lasked for more predictive analysis from to protect deployed torces interviewees worried that Center do not have the time to spot trends or to knit together the threads given the ood of information The consensus from operational counterparts in CTC is that analyst support to operations planning continues to be one of the of the Center Several of the managers from the operations groups stressed the importance of close cooperation and continue to seek avenues to strengthen the relationship AIG officers received mixed reviews on analytic depth and expertise ymbonzmg GICHOIOITIY 01' 0131111011 U1 respondents to the OIG survey of CTC partners and customers identified staff expertise as both leading strength and an area in need of improvement AIG employees represent a wide range of experience but the group is more junior than the DI average More experienced and managers were out for favorable reviews August 2001 25 DCI Counterterrorist Center U Analytic Concerns AIG acknowledge that the constant state of crisis and strong demand from policymakers and Agency seniors limit their ability to conduct strategic research and develop in depth expertise The lack of time to undertake warning and predictive analysis was one of the most frequent concerns voiced by we interviewed Such analysis they noted could enable them to predict terrorists patterns of behavior or operational practices to allow the Center s operational components to get ahead of the target This concern is neither new nor unique to CTC The report highlights the difficulty of undertaking strategic analysis in a near-constant crisis environment The OIG should know that even as the inspection team was conducting its review of the Center the DCI and DDI 26 August 2001 DCI Counterterrorist Center W were working on this issue The DDI has provided a new infusion of seasoned into CTC many of whom will serve in a new strategic analysis branch to meet just those analytical needs identified in the report The OIG found that AIG was not taking full advantage of resources available in the DI A number of oartner customer survev respondents ommented that 1 should improve their coordination and collaboration with their DI counterparts CTC and Office of Near Eastern South Asian and African Analysis managers have had preliminary discussions about exchanging to encourage better collaboration and more cross fertilization of expertise We conclude that AIG could increase the effectiveness of its analytic resources and gain more regional expertise by fostering stronger relationships with DI regional offices August 2001 27 SEER-EH DCI Counterterrorist Center SURGE AND INFORMATION EXPLOITATION MANAGEMENT Due to the nature of the target CTC faces the challenge surge management Surge can be triggered in various ways ranging from a terrorist incident Crisis Management A number of interviewees described CTC as frequently operating in a state of crisis responding to a series of terrorist actions or threats Center officers and managers overwhelmingly believe that they surge well in crisis situations through team effort initiative and prioritization Employees have learned from experience their roles and responsibilities and automatically assume those roles when a crisis occurs On occasion the effort of CTC employees is supplemented with assistance from the DI and the DO Several interviewees noted that their managers were sensitive to the potential for burnout Management for example does encourage employees to take time off as needed and as appropriate Exploitation of Data demands placed on do not allow it to exp101t an the 28 August 2001 DCI Counterterrorist Center information it collects As a consequence the risk exists that a potential warning will go unidentified support to CTC has undergone significant growth since the last 01G 1nspection The biggest management challenge is finding the right people have an excellent reputation among 1L orncers ror responsiveness and high quality work and thev are in constant demand August 2001 29 DCI Counterterrorist Center 30 August 2001 DCI Counterterrorist Center m August 2001 31 BEER-ELI DCI Counterterrorist Center COMMUNITY ROLE The DCI is responsible for coordinating the counterterrorist efforts of the Intelligence Community IC In addition Presidential Decision Directive NSC-39 charges the DCI to disseminate to US Government entities threat warnings pertaining to terrorist threats derived from foreign intelligence As the Special Assistant to the DCI CTC acts as the community representative for counterterrorist matters The Community Counterterrorism Board CCB ter- Agency Intelligence Committee on 'l errorism 11L 1 a forum for organizations representing the intelligence law enforcement defense and regulatory communities to advise and assist the DCI with respect to the coordination and publication of national intelligence on terrorism issues and to promote the effective use of IC resources mechanisms by WHICH the IL prepares coordinates and disseminates terrorist threat publications prepares coordinated IC threat trom the to alert senior policymakers of possible foreign terrorist attacks against US and allied personnel facilities and interests The majority of customers and Center managers wnom we interviewed and who claimed to be familiar with CCB praised the board for its coordination role Customers valued CCB most for its capacity as an honest broker in facilitating and decon icting community views on threat warnings Most CTC managers who had views recognized that CCB plays a necessary and frequently unheralded role as liaison with the community One manager noted that CCB is not adequately acknowledged for the contribution that it makes Indeed more than one half of the Center 32 August 2001 DCI Counterterrorist Center managers whom we interviewed lacked a clear understanding of role and function Some ioted that is understaffed because other agenc1es had not ruled their assigned community positions Director Central Intelligence Directive mandates ole and composition Interviewees suggested at Lenter employees often step in to fill gaps created by this understaffing August 2001 33 DCI Counterterrorist Center Since the last inspection EXTERNAL OPERATIONAL PARTNERSHIPS the Cen er na broadened and deepened its partnerships with other US Government perauonai organizations working the terrorist target The working relationships have been marked by an increased exchange 0 information see figure 8 letaile people and es currently assigned to CTC form the core or 1e Center s tactical partnerships This number represents a jump of almost 50 percent from the total in 1997 In turn detailees have increased the two way flow of information by supporting joint efforts by CTC and their home organization or by working in regular CTC line positions 34 August 2001 DCI Counterterrorist Center Figure 8 August 2001 35 DCI Counterterrorist Center Federal Bureau of Investigation TC and FBI interviewees consider the relations 11 between the two organizations to be vastly improved The growth in joint act1v1t1es and cross a551gnments suggests that the relationship is now more institutionalized and less personalitj dependent The Center provided operational support to FBI 1999-2000 escri cooperative relations w1th the FBI allowed us to work together on what were closely linked domestic and international terrorist threats as one of the three key elements to the success of the Agency s response to the millennium threat The assignment of top ight personnel to significant positions at the Headquarters level of both organizations has substantially improved coordination one of the three CTC deputies is an FBI officer Interviewees noted that some problems persist and ova 1y will never be overcome fully A natural tension exists between the two organizations deriving from their different missions which can be negotiated but never eliminated The most frequently cited catalyst for disagreements was the difference in organizational mission intelligence collection for the Agency and successful prosecutions of terrorists for the FBI While some interviewees commented that potential intelligence opportunities were lost because of deference to law enforcement goals most acknowledged the mutual benefits derived from cooperation Concerns still remain in both organizations about access to the counterpart s mission critical information The intensity of this issue however was much less pronounced suggesting improvement in area 36 August 2001 DCI Counterterrorist Center Department of Defense relationship with NSA has improved dramatically NSA information has August 2001 37 DCI Counterterrorist Center 38 August 2001 DCI Counterterrorist Center Mission CTC LEADERSHIP AND MANAGEMENT ISSUES mission-oriented workforce is generally well managed especially given the size and scope of the organization and the target Nevertheless the OIG found several areas of employee concern that if ignored by management could erode the Center s effectiveness CTC employees clearly understand their mission and believe that their work is Vital to saving American lives Most of the employees interviewed described the mission as incorporating in total or some part the effort to identify disrupt render or in some other manner stop terrorism and terrorists responden understand the and IUIICHOII OI 131161 work units- employees DQIIEVE that they are navmg an impacr Interviewees oointed to specific actions exemplars of mission successes respondents believe that they are meeting the needs of their customers This sense of mission and belief in its importance and succes have helped to create what customers partners and CTC employees describe as a highly dedicated workforce that produces quality work Field officers for example characterized the workforce as enthusiastic proactive energetic and hard working More than agree that 15 to domg high quality August 2001 39 ssesm DCI Counterterrorist Center Quality of Leadership and Management Interviewees characterized front office man gers as operationally savvy and models of mission- oriented managers Component and field personnel generally commend CTC in particular for his review of the Center s counterterrorist strategy and decision to expand unilateral operations Senior Agency managers regard front office management as operating an effective program against a difficult target Customers respect the Center s chief and deputies for opening channels of communication and for their expertise Senior customers described CTC as responsive a facilitator and an excellent spokesperson for the Center CTC employees were generally pleased with front orrice management and survey respondents rated these officers on par with the rest of the DO management in communications issues Of the interviewees who commented on their management style a significant number indicated that Center personnel seldom saw the chief and deputies They noted that in their fast-paced and stressful work environment employees desired simple affirmation of a job well done from their managers something that they thought could be done more often Almost all the interviewees recognized the increasing demands placed on the Center s senior management by external and internal customers as well as the logistical challenges presented Nevertheless the Ulb encourages all front ornce managers to make interaction with Center personnel a higher priority Interview and survey results suggest that analy ts 1e 1 more removed from Center management than the rest of CTC officers 40 August 2001 DCI Counterterrorist Center EEC-rem operations focus of the current management team concern over me 1ac1 OI any IlluLucuus top-down communications Interview and survey data show that Center pers generally value the dedication and effectiveness of their branch and group chiefs August 2001 41 MIN S'Ecnsl DCI Counterterrorist Center Funding Although overall budget has enjoyed growth over the last five years the Center has become increasingly dependent on supplemental funding Interviewees overwhelmingly said that to date the budget had been adequate DO area division officers compared the Center s finances favorably to other parts of the directorate and were generally pleased with financial support to them Field interviewees for sEc-R-Ew 42 August 2001 DCI Counterterrorist Center example were able to identify operations undertaken and liaison relationships strengthened Nevertheless supplemental funding as a t1nanc1a1 source is unpredictable and the attendant uncertainty can have a negative impact on sustaining the mission In addition unanticipated crises which necessuate a su ge in spending require program adjustments both at Headquarters and in the field Problems occur during the gap between the time that resources are expended on these surges and reserve or supplemental funds are allocated to the Center to offset these costs A number of interviewees described FY 2000 during which CTC estimates that of its budget was consumed by the additional cost or the millennium surge as an especially difficult or rollercoaster year oney tollowmg in August During the gap period interviewees told us that programs LW were affected 1ne impact or the riuCtuation in un mg was felt in a number of areas August 2001 43 DCI Counterterrorist Center Staffing CTC draws on employees from all four direc orates incorporates detailees from the Intelligence Community IC and law enforcement agencies and employs contractors The OIG views alversuy as a strength because it to the Center s ability to integrate the needs and differing approaches and cultures of Agency components as well as various IC partners We noted previously how detailees serving in CTC allowed a smoother exchange of information and contributed to better working relationships with these agencies 44 August 2001 DCI Counterterrorist Center While Center employees consider budget resources to be adequate they are less sanguine that CTC has ade uate personnel resources to effectively fulfill the mission of survey respondents believe that their work unit does no have sufficient personnel to accomplish the mission these figures are largely comparable with survey results from the rest of the DO and are of perceived shortages in the entire directorate A substantially higher proportion of respondents from the operations reports and operational support groups do not believe that their work units have sufficient personnel AIG the responses were more evenly between those who believed the group needed additional personnel resources and those who found the resources adequate CTC has limited options for dealing With this perceived personnel shortage mployees are Dy any staffing shortage particularly in those units that are chronically short-staffed Center management has redistributed personnel to areas it feels are facing the greatest demands anagement IS also trying to improve the effectiveness 0 the staff by addressing the skills mix issue which is discussed below in more detail Center employees are managing this perceived iortage in a way that leaves many vulnerable to burnout and allows little time for strategic work Personnel regularly work extra hours and are only able to perform what they perceive to be the essential tasks One manager commented that the demand on the staff means that they go from crisis to crisis and are not able to look at trends or more long- range issues to get ahead of the terrorist An AIG analyst August 2001 45 DCI Counterterrorist Center worried that he only had time to answer the mail and as a result he might miss warning signs of a threat Skills Mix Issues As discussed previously customers partners and managers have identified some areas of inexperience CTC has taken great strides 1n recent years to attract and retain talented officers largely through home-basing Yet CTC managers and employees perceive that the Center has not been as successful as it could be in this area Center managers identified a number of developmental issues which they are starting to address Home basing For several years after inception it relied almost exclusively on rotatees from other directorates to undertake the substantive work This strategy did not ensure that the Center was able to retain the best officers and contributed to the lack of expertise and depth The Center now home-bases leis a method of developing in-nouse talent wnile con mumg draw on DI and DO rotational officers to provide experience and regional expertise nterv1ewees le reactlon t0 home-basmg Viewing it as a commitment on the part of Center management to counterterrorism as a professional specialty worthy of its own career service 46 August 2001 DCI Counterterrorist Center W less satisfied with career guldance and tralmng August 2001 47 m DCI Counterterrorist Center 48 August 2001 DCI Counterterrorist Center Center managers are aware that these career development issues need to be addressed if CTC is to compete for talent with the rest of the Agency and develop its own cadre of qualified counterterrorism specialists For instance is focusing on training and developmental a551gnments including internal rotations and August 2001 49 My DCI Counterterrorist Center FINDINGS Home-basing while helpful has not addressed the career concerns of CTC officers particularly as CTC has stepped up efforts to recruit officers directly into the Center A sizable number of CTC and operations officers have expressed dissatisfaction with the career development guidance and training opportunities currently available to them CTC managers have taken some steps to address these concerns but they have not been adequately communicated and have lacKe a comprehensive Center-based approach RECOMMENDATION #3 For That CTC pre home-based occupation are detailed written career guidance for each discrete CTC m 50 August 2001 DCI Counterterrorist Center Managing Contractors CTC employs ontractorS or roughly the Center s total wor force who perform Vltal This diverse contractor population is complex to l each a governed by a different set of regulations August 2001 51 DCI Counterterrorist Center The decentralized administration and diversity of contracts have made it difficult for Management Group to ensure fairness and consistency particularly as the number and variety of contracts have grown CTC management recognizes the problems in contract administration and has recently created a 52 August 2001 DCI Counterterrorist Center position to provide centralized oversight UIU strongly endorses the creation or this new pOSition and recognizes that contract population would benefit from oversight and standardization Diversity Issues The 016 found no pattern of gender or minority discrimination in CTC The Center s workforce l HS roughly as diverse as the rest or the Agency population omponent survey respondents saw no gender or race preferences with regard to promotions assignments awards and other personnel actions These responses were more positive than responses from other DO and Agency components Center management should note however that respondents who identify themselves as minority believe that non minorities receive preference with regard to personnel actions L i is aware of this issue and has indicated that he W111 address it August 2001 53 @8153 20 Im00 m20 j02m DCI Counterterrorist Center FINDINGS AND RECOMMENDATIONS August 2001 1 Erma-1 DCI Counterterrorist Center FINDINGS Home-basing while helpful has not addressed the career concerns of CTC officers particularly as CTC has stepped up efforts to recruit officers directly into the Center 0 Esizable numheibf CTC and operations officers have expressed dissatisfaction with the career development guidance and training opportunities currently available to them CTC managers have taken some steps to address these concerns but they have not been adequately communicated and have lacked a comprehensive Center-based approach RECOMMENDATION #3 For That CTC prepare detailed written career guidance for each discrete CTC home-based occupation 2 August 2001 DCI Counterterrorist Center August 2001 DCI Counterterrorist Center SCOPE AND METHODOLOGY A team Lg W onducted an inspection of 1L from eptem er ough February 2001 Based on the Terms of Reference provided to senior CTC management the inspection focused on a range of topics including mission accomplishment customer satisfaction and operational and personnel management success The goal was to provide Agency senior managers and the Chief of CTC in particular a balanced objective View of the Center highlighting programs and processes that are working well and noting those areas that need improvement The team gathered information for this report from 1nterviews a CTC employee opinion survey a customer partner survey of D1 and DO officers two focus groups and numerous documents on a wide range of topics related to the Center s activities h spectors 1011- Agencv customers and CTC counterpar 5 1n me vvasnm ton area overseas August 2001 1 DCI Counterterrorist Center August 2001 mcw m DCI Counterterrorist Center mo EMPLOYEE OPINION SURVEY As part of its inspection of the DCI Counterterrorrsr Lenter CTC the Office of Inspector General conducted a component surv y We distributed the survey questionnaire to all CTC careerists both working in CT and on rotation outside the Center and to personnel belonging to other Agencv components but currentlv serving in number of career and job related issues The survey items assessed opinions on a August 2001 CO I DCI Counterterrorist Center August 2001 DCI Counterterrorist Center August 2001 3 DCI Counterterrorist Center August 2001 DCI Counterterrorist Center ALTJ August 2001 5 DCI Counterterrorist Center August 2001 DCI Counterterrorist Center August 2001 DCI Counterterrorist Center August 2001 DCI Counterterrorist Center August 2001 This document is from the holdings of The National Security Archive Suite 701 Gelman Library The George Washington University 2130 H Street NW Washington D C 20037 Phone 202 994-7000 Fax 202 994-7005 nsarchiv@gwu edu