i C0 1 525482 5f CRE'l' • l I Central Intelligence Agency Inspector General bJ I b 5 I G 2000-0009-IN lb bJ 1 lbJIU PPROVED FOR IRELEASE fJ DATE i26-Jul-2010 l______j INSPECTION REPORT OFTHE DCI COUNTERTERRORIST CENTER DIRECTORATE OF OPERATIONS AUGUST2001 r- - - ·- - - - - - - - - - - - - - • ·-- · L - - -···---··-·-·· - -- ----------- SECRET AL___ ____ _____ ------- - -·-- _ J J j C01525482 SBCBJ T j l l' G-2001-0513 22 August 2001 MEMORANDUM FOR FROM Deputy Director for Operations Deputy Director for Intelligence Chief Counterterrorist Center f 1 Ct Ing IIlb'Peci ur I uenJral I i SUBJECT I JCT Inspection Report of the c ouncerterrorist Center I 1 j Attached is the final report of our inspectionori n hcI Counterterrorist Center The three recommendations are the same as those contained in the draft report you reviewed Based on the DDO's 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 r - -- Please forward to me within 60 days a formal re - - ·-ng forth the actions taken to implement the recommendations and or a timetable for eventual full implementation I -- 3 If you have additional observations or comments buu-c---crr rs inspection or any related matters please feel free to contact my Acting Deputy fhe Assistant Inspector General for InspeJ c cons I - -- - or me signed Attachment As stated cc Downgrade to U AIUO when separated from attachment f -- ' ISl'IIEl t'C ltlllt l ITllo -° 1 I C01525482 I • l SUBJECT II Inspection Report of the DCI n rrorist Center 20 A 1 1 st 2001 OIG FILE Distribution ·------···· Original - 1 1 - 1 1 -· 1 1 - 1 1 1 - 1 1 - 1 - 1 _ 1 1 1 1 C01525482 OCI Counterterrorist Center Table of Contents Executive Highlights iii Introduction • 1 CTC and the DO 4 Operations to Counter 4 •·· ·-·--·· --------·-·---··· ·Terrorism 1 c re Relations w1tn u 9 J························································ Stations 13 Collection and Reporting 18 Counterintelligence and Security 20 CTC's 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 CTC's Community Role • 32 Extental Operational Parbterships • 34 Federal Bureau of Investigation 36 Department of Defense 37 Department of State 38 August2001 i C01525482 r f OCI 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 ------- ------- -1 ii I August2001 C01525482 OCI Counterterrorist Center EXECUTIVE HIGHLIGHTS The OCI Counterterrorist Center CTC is a wellmanagea omponent 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 OCI 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 August 2001 • 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 • CTC's r sources have stead ly increased over th _ __ -- years with personnel growl ' gl___________ dunngffiaf period an the budge ----------- _ Jihe C nter's comparatively favorable resource srmam m allows 1t not only to ex tand_t_ts_ o_w o ms but also to su_e rt operation -lhat 00 area divisTons otherwise coulanofnina l'neUIG cautions however that in recent years most of the increase in CTC's budget has come in the form of supplemental funding which is unpredictable iii C01525482 DCI Counterterrorist Center -SECRSJ I • • 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 • 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 revieJ s- l istomers 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 analysts have time only to focus on crises or other short-term demands Some consumers worry that Center analysts do not have the time to spot trends or to knit together the threads from the flood of information i IAfter reviewing the Center's capabilities curren tmmageinent 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 organizatio byJraditional clandestine methods---unilateral operatiortSj 1 I I 1 __ TC statistics__su jt ilia it is lVing_ _____ some success l ------------------------- --------------____J iv August2001 C01525482 OCI Counterterrorist Center Although CTC has increased its emphasis i on ulmateraroperations a keycomp Jl'l l' t of the center's operational effort is liaison services I Tc 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 highprofile 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 Jnd retaining a sufficient cadre of trained experienced oJficers requi ed fo '_t e new operational strategY _ - - - -------- _pnd strategic analysis CTC's customers partners anamanagers have identified some areas of inexperience among both operations and analytic officers The Center has made a concerted effort to August 2001 V C01525482 l OCI Counterterrorist Center BCR1iT £J • attract and retain talented officers-largely througl t home-basing - A number of C g rs and officers _ i I· · - gu1ctanceanaframing1 expressed concerns a6ouf car et _ and_ill-defined car rpaths j r·------ ·-·-·-- ·-------·----·- - - I ICTC management L_ described several deveI opmenfafissues 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 I 7stressful Work Environment Center employees frequenflf operate in a state of crisis-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 reflection 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 vi August2001 C01525482 OCI Counterterrorist Center 1 • •·• · -Communication and Coordination The Center brfngsari Agency focus to an important transnational target requiring close cooperation with units in all directorates particularly the area divisions in the 00 Interviews of area division and station officers indicated a need for closer communication and coordination Such interaction is critical because CTC is the rep J1 itory of counterterrorist · · · · ·· 1 _ resources prov1aea to me area aIVJ s1ons--ana-r1erasranons-un-- ·· · which CTC depends to conduct much of its operational business The OIG suggests that CTC management find opportunities to engage in a more actiye dialogue withl Q area division manag_e I en _____________ _ I -··· Sin uTarlf -wefoiirid thafL Cwas riofta l mgtuff aavantage of resources available in the DI The Center could increase the effectiveness of its analytic resources and gain more regional expertise by fostering stronger relationships with DI regional offices J ---lWhile CTC employees were generally pleased with tront 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 haHen s psesented by a lar --- ____ 1 workforc I I J August 2001 vii - SHCREI 1 J C01525482 DCI Counterterrorist Center Nevertheless the OIG encourages all front office managers to make interaction with center personnel a higher priority viii August2001 C01525482 DCI Counterterrorist Center IINTRODUCTION I The DCI Counterterrorist Center CTC was fon nea m 11986 as a result of perceptions that terrorist incidents were increasing and that CIA's counterterrorist efforts required focus see figure 1 CTC operates under the Director of Central Intelligence OCI but resides in the Directorate of Operations 00 for administrative purposes It performs the counterterrorist responsibilities that Presidential Decision Directives NSC-39 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 00 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 -- - I i - - - - - - - - - fresidential Decision Directive NSC-35 ranks counterterrorism as a Tier One objective I August2001 1 C01525482 DCI Counterterrorist Center Figure 2 1---i rc operates in a challenging environment in whitn tne target 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 August2001 C01525482 OCI Counterterrorist Center J 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 August2001 3 C01525482 OCI Counterterrorist Center St CRE I • U CTC AND THE DO I iCTC management's operational focus is to develop a' stronger unilateral effort to penetrate terrorist organizationsrm l ey areas maintain strong_J X f igrt liaison rela tio11ship J _ _ __ JWfu1e gets gooa reviews from ffeld stations and area divisions better coordination on strategy and operations could improve these relationships and the effectiveness of the Center etc generally ·· U Operations to Counter Terrorism _1 ··-- -lcrc has ad some _recent notable successes 1h preempnn ahd thwarting terrorists' plans Millennium Threat In collaboration with US law enforcement and foreign intelligence and law enforcement agencies CTC orchestrated a global effort a _a -tU_sa B i11_1 ad n • I - 1 I •l -- CTC working with • - multiple stations and services ictentifie _ and detained or arrested filsafsruption----·--prevented attacks against us interests according to CTC J • - - - _Jin late 2000 CTC worked with its 1XYand foreign partners to identify and disrupt -I i-----· I --· I I - ----------·-·-----·-··-··--- I 4 August2001 C01525482 OCI Counterterrorist Center U C M-1 I I ifhe current CTC senior management team determmerr maisuccess a2ainstke¥ targets such as Usarna I P1 nrecriiitmenfiind peneJa ir k S t organizatio l y traditional clandestine qtE tlle ds--ll itaJ raL operations• r ········· ······· ······J i L Cooperaffoiiwftnl eyliaisonser-v-ic-es_J_ _ __ August2001 5 C01525482 l OCI Counterterrorist Center • To increase the number of operations officers available to serve overseas CTC plans to home-ba officer s from each Clandestine j3e · -- - --_ graduating class CTC receive -JMoreover CTC management launchecra-drrecTfimng campaign to employ officers with special skills native fluency in language 6 August 2001 7 C01525482 OCI Counterterrorist Center • The Center developed a counterterrorist-focused operations course specifically tailored for officers undertaking CTC activities in the field addition CTC realized the need to communicate new opera ofil'lL trate2Y_lo DO __Headquc 1rters and the field ----- ------ -_ I August2001 fiefaofncers interviewed were familiar with CTC'snew operational strategy 7 C01525482 DCI Counterterrorist Center - SiCRC'Fi CTC statistics suggest tnaf ffis naving some success i i i L __ - ---- -------- ------- -- -- - - ------ 8 August2001 C01525482 OCI Counterterrorist Center As CTC continues to implement OIG suggests that CTC management ffndoppoitiii iitieSfo engage in a more active dialogue __ lwilh DO •ll il clivision management L August 2001 9 _ C01525482 DCI Counterterrorist Center SliCRaT 10 August2001 C01525482 DCI Counterterrorist Center August 2001 11 C01525482 DCI Counterterrorist Center f CRE¥1 I I 7 i 12 August2001 C01525482 OCI Counterterrorist Center CTC Relations with DO Stations r·- -- L About two- rds of _field o ficers inte iewed prafse refC for the assistance 1t provides espeaally durmg high visibility events I August 2001 13 ' °'r CJiUi' I - C01525482 DCI Counterterrorist Center • Stations were particularly pleased that the Center's financial assistance allows them to conduct operations home divisions could not fund see figure 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 informa o1 provid by • • i J- - Stations visited by the team higllly Y l 1-1 _ training p 9vide l l y_ TC Station officers praised CTC employees who traveled overseas to brief and discuss counterterrorist issues 14 August 2001 C01525482 DCI Counterterrorist Center -SECRi X Figure4 CTC FUNDING TO OTHER DO DIVISIONS FY 2000 -- -1nie remaining one-third of field interviewees no ect some shortcomings ran8 r1 gJro l fairlyj ola te d _ incidents to-------broader concerns I ---- - - - - -------- - ------------ ____ J I I l_______ - ------- _Jmorefrequent complaint was slow-or - r - I'l ft 1ewees were quick to point out that L 1L 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 out fires -------------------- ----- August 2001 15 - fC REI I C01525482 DCI Counterterrorist Center ··rr rci r r dparmers 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 00 respondents however had specific criticisms to offer When asked how CTC could be more responsive to customer I partner needs survey respondents most frequently commented r that the Center need dbetter - coordination SEC •·····-· I I 16 August2001 C01525482 -s2em OCI Counterterrorist Center August 2001 17 - SECR E C01525482 OCI Counterterrorist Center U CoUection and Reporting Counterterrorism has high priority and at several stations this objective is a primary driver L ___ _ _jfhis 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 Jn _ _ addition t Jl 4 u l ty J ' I'orts ha mi rovedf Figure 5 CT Reporting Trends 1997 1998 1999 2000 This chart is classified SECRET NOFORN 18 August2001 J C01525482 - cCREI OCI Counterterrorist Center l --l jDespite the positive reporting trends Tc managemenfiina 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 ancL Q Il r e 1 c g tail_ --- ---_--_ _ ----- - 'trategy 1s designed to close these gaps and prov1aetfie 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 i •Senior Agency officers were adamant that thkenrer na a no choice but to follow the zero threshold approach for threat r rtin£ _all threat information is______ _ -- disseminated guicklyjl tlhreat reportmg consntutea --------reports CTC disseminated in 2000 Almost all customers interviewed recognized this approach as a necessary evil in the counterterrorist field but some senior r----- August2001 19 ' 1 _ 7 -1 - C01525482 OCI Counterterrorist Center SECRET customers particularly from the military complained that threat reoortin2 was difficult to act upon if- it did not·-·include I - enoug especially frustrating because ·repornrtg rromc n -carr1es tremendous weight Given the levelof activitvc 1nqliIIliteclreso_ttrce1 Ll1C ver1 IC's _·__ · _pveral Was infton an field customers managers and officers givel lugh marks for rapid dissemination and reaction rrr sroup 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 f _dback th y_ received on ___ their terrorist-related reporting • ------··-----·------- U Counterintelligence and Security I ---- ------ ----1 L ______ i J 20 August2001 C015 5482 OCI Counterterrorist Center August 2001 21 C01525482 OCI Counterterrorist Center CTC'S ANALYSIS ICTC provides tactical and strategic analysis to the I polfcy intklligence and law enforcement communities as well as support to operational targeting and planning Customers partners and Assessments and Information Group AIG analysts 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 I JThe Role of Analysis __ _- jcTC has had an analytic component since its r incJpm mrn 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 rema __c _ elatively small part of the Cente t_ accounting for onl _____ _____________ f the total Crc workforce ------- ---- ·1 I JAIG's small size belies the critical role it plays in meetingme CTC mission Analysts in AIG have a multidimensional mission that ranges from production of traditional Directorate of Intelligence DI current and longer-term analytic products to CIC-unique warningjte Jn S_ I E_Ort of operational planninJ p s mission is made ev1n more wmpncacea oy th_e_s tr-o-ng demand from policymakers for Sl pport in the form of briefings specialized products and r community video teleconferences as well as oy rrequem briefings to Agency senior managers and Congressional l _J 22 l_ August2001 _J C01525482 DCI Counterterrorist Center testimony Interviewees from this group characterized their customer base as broad high-level and demanding Moreover AIG analysts devote a significant amount of tim to counterterrorism operatlons support • •• • t •• f· l Although analysts and managers consistently described llieir 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 analysts' time AIG interviewees most frequently cited lack of direction or conflicting signals as the biggest obstacle to accomplishing the mission In an environment in which there is a general perception that analysts are pressed for time they expressed the expectation that management would set dear 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 C01525 4 82 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 analysts 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 i I Policy-level customers generally valued CTC analysTs -t onsumers most appreciated it when the analvAUL ____ provided the needed conte t for decisionmakingJ - or example appreaaTes tfie community video telecofirerences-in which CTC usually takes the lead-because it affords him the opportunity to have a dialogue with analysts who have expertise and are _JamihaLwith in relligence repo rc --·----at most nrgmy- t1rus o room rs·trnrn ackground · information was effusive in his praise for r_ _ th uali O Son a ma'or terro st groul 24 August 2001 l C01525482 iI DCI Counterterrorist Center Customers were concerned that not enough work to provme 1context for policy decisions was getting done because analystsfocus on crises or other short-term demands f ·· · · ··· · · · · ··Jasked for more I 11rec i tive ana y iS frgrriCJ _i rol feplQY JC r · 1 i interviewees worried thafCenter analysts do nofhave llie time to spot trends or to knit together the threads given the flood of information -·j The consensus from AIG's operational counterparts in CTC is that analyst support to operations planning continues to be one of the strengths of the Center Several of the managers from the operations groups stressed the importance of close cooperation and continue ek Iavenues lo strength he r •l•li JnshiP-1 r·--··7A1G offic rsreceived mixedreviews on analytic •···•-i I det11h and •XJ1erti moouzrng tnrs atcnotomy or opuuon responaenfsTo me OIG survey of CTC partners and customers identified staff expertise as both AIG's leading strength and an area in need of improvement AIG employees represent a wide range of experience but the group is slightly more junior than the DI average j More experienced analysls amana ers ere smgledout for favorable reviews1 I L ·---- ---·····---··J August 2001 25 u1 ' C01525482 OCI Counterterrorist Center U Analytic Concerns i i I r -1G analysts 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 analysts 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 r l _ This conCE l'll is neither new nor uniq11e to CTC ------ -- --- - - - -- --··--· i 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 August2001 C01525482 OCI Counterterrorist Center were working on this issue The DDI has provided a new infusion of seasoned analysts into CTC many of whom will serve in a new strategic analysis branch to meet just those analytical needs identified in the report I jThe OIG found that AIG was not taking full adva ra ge of resources available in the DI A number of oartnerLcustomer su rveYre SQ Qn d rt ·· · ommendted that ere ana1ysts suotild improve ffi e1r cooramation an collaboration with their DI counterparts CTC and Office of Near Eastern South Asian and African Analysis managers have had preliminary discussions about exchanging analysts 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 ·····--· ··-··1 ···· r August 2001 27 I A C01525482 I DCI Counterterrorist Center -' CRE'Ffl I SURGE AND INFORMATION EXPLOITATION MANAGEMENT Due to the nature of the target CTC faces the chkmenge of surge management Surge can be triggered in various W'ilj' rat tging from a terrorist incident l jCrisis Management ·1 jA 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 00 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 ·· aemancfs pracedon· crcao norauow·1troexpronau the 28 August2001 C01525482 OCI Counterterrorist Center information it collects As a consequence the risk exists that a potential warning will go unidentified ' 1linguistic supp Jrt to CTC ' jruisunaergonifsignificanfgfowffi since- · ffieTasf OIGTnspect ion liil fiilg t l 1 gert1en cha11eng•t is --- -------- _ _ have_an excellent r putatio_n among c re omcersTorre pons1veness a11c lb1ghqy li t Y _ __workL andtheY_are_in constant demal1d '--- -------- -- - -- August 2001 29 -- ---- --- C01525482 DCI Counterterrorist Center 30 August2001 C01 525 482 DCI Counterterrorist Center ---------·--···-··-·-- _____________________ ______ August 2001 - - -------·-·-·---·--·---- - --· --·--------- 31 C01525482 OCI Counterterrorist Center crc'S COMMUNITY ROLE The OCI is responsible for coordinating the countettetrorist efforts of the Intelligence Community IC In addition Presidential Decision Directive NSC-39 charges the OCI to disseminate to US Government entities threat warnings pertaining to terrorist threats derived from foreign intelligence As the Special Assistant to the OCI C CTC acts as the OCI's community representative for counterterrorist matters 1 J he Community Counterterrorism Board CCB ·• 1----------- ---_-- - -- - ---- ------ ------·---- - ·1 __Agency InfeII1genceComrruffee on Terrorism I J um J for organizations representing the intelligence law enforcement defense and regulatory communities to advise and assist the OCI with respect to the coordination and publication of national intelligence on terrorism issues an i - ··-·--· _ to promote the effective use of IC_resourc --- ___________ 1 f · L _ · · jneroarusms oy wrucn tne IL prepares cooramares -arnr1disseminates terrorist threat publications · · - - - - - - - - repares coorrunated IC thre warrungs fronnne7 JC rto-atert senior policymakers of possible foreign terrorist attacks against US and allied personnel facilities and interests I iThe majority of customers and Center managers wl'ionrwetnterviewed 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 deconflicting 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 r--- 1 ECRls j 32 August2001 C01525482 DCI Counterterrorist Center managers whom we interviewed lacked a clear understanding of CCB's role and function hoted that CCB·- _ 1 -----······ ·-- is understaffed I iecause om er agenaes narrnm rmec r rne1r 1signed community positions DfrPi'tor nf Central Intelligence Directive 1-----Jmandatesl tole and composition Interviewkes suggested than i n er employees often step in to fill gaps created by this understaffing August 2001 33 C01525482 DCI Counterterrorist Center EXTERNAL OPERATIONAL PARTNERSHIPS 1 Since the OIG's last inspectioJ be Center na broadened and deepened its 6peranona1 partnerships with other US Government organizations working the terrorist target The working relationships have been marked by an increased exchange of people and information see figure 8 etailees currently assigned to CTC form the coreor the 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 August2001 C01525482 - I h 1 OCI Counterterrorist Center Figure8 August2001 35 r-L - C01525482 OCI Counterterrorist Center Federal Bureau of Investigation r l Y en the -CTC and FBI interviewees consider the twoorganizations to be vastly I - - The growtfi in t-- ·-- I -fomfiicfiv1Eies ana cross assigrunentssug esrs that the relationship is now more institutionalized and less personalildenendent ThttC ter provided operational_____ surmortb _____ _____ fllli _ 1999-2000 --------------------------------------------------- - - _- - ------- -_ l 1c descnbea __ 1 1 cooperative reiaffon s Wiffitne PB1 wrucri ·a11owed 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 flight personnel to significant positions at the Headquarters level of both organizations has substantially improved oordination __one ___ f_th_t t ' ee CTC deputie •is an_FBI officer ···-· -J 1 r gnterviewees noted that some problems persist and p ly will never be overcome fully A natural tension exists between the two organizations deriving from their different missions whkh 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 in sltv of this issue however ___ _ was much less pronounced __ - J 'll_ggeSti g lm__prOVemenf lfl tfiiS area r r 1· _ 1 I 36 August2001 C01525482 OCI Counterterrorist Center ' Department of Defense -------- --- - --------7 L-- - - - JCJC's relationshi£ w th NSA has improved dramaticallyj I NSA information has -------- -------------4 ---- ___ t------ - ------ i I i I- August2001 37 -- - C01525482 DCI Counterterrorist Center I i 38 August2001 C01525482 SECRB'F ' OCI Counterterrorist Center CTC LEADERSHIP AND MANAGEMENT ISSUES I CTC's 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 l I Mission L CTC employees dearly 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• insome theLmanner stop terrorism _ and terrorists respondenf uru Imfafil lfiaID1 ss1on ancuun cmm or me1r-- work unit5i - Moreover employees belleve mat tney a tenavm_Jtmi nnPEr _ x t i 1uccesses ·· _j J l te ewees pj 1 espondents believe t at I meeting the needs of lliefrcustomers ey are-- I ---mus sense of mission and belief in its importance and stu J 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 ' n tic and hard working More than f g ee tfiiit CTC 1scmnnutteournot rugn quamy' wooc r --·-··- ··--•· ···--· August 2001 39 ··-- _ _ · 1 C01525482 ' OCI Counterterrorist Center I Quality of Leadership and Management Interviewees characterized CTC's front office managenras operationally savvy and models of missionoriented managers Component and field personnel generally commend C 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 C CTC as responsive a facilitator and an excellent spokesperson for the Center CTC employees were generally pleased with front omce management and survey respondents rated these officers on par with the rest of the 00 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 f l S- ' _ logistical challe ges presente-1____ 1 r ---- -- -· -- Nevertheless the Ullj I encourages an front olfl c e-1 ruudgers to make interaction with Center personnel a higher priority Ls Jnterview and survey results suggest that analy 1 I more removeEfrom Center management than the rest of CTC officers i 7 ---- __ r···· s 40 August2001 J C01525482 DCI Counterterrorist Center operations focusot llie current management team I conc ern over me 1aCK or any 11Th'llrut101ra1meu1cUn5Jns ror tot down coIIlJJlunicatj9 ' l 1 I nterview and survey data show that Center persormer enerally value the dedication and effectiveness of their branch and group chiefs August 2001 41 C01525482 OCI Counterterrorist Center Although CTC's overall budget has enjoyed growth over the last five years the Center ha bec Ile increasingly_ 1 __ d end nt oi i suppl_em ntal funding 1 nterviewees overwheirmng1y sa1a · L --Uianoaare-ffiebuageffiad been adequate 00 area division officers compared the Center's finances favorably to other parts of the directorate and were generally pleased with CTC's financial support to them Field interviewees for 42 August2001 C01525482 OCI Counterterrorist Center example were able to identify operations1IDder@l ell c1I1d liai$0ru·elationships strengthene Nevertheless supplemental runding as a ftnancfaI source 1s unpredictable and the attendant uncertainty can have a negative impact on sustaining the mission ' j- r ___ I I In addition unanticipated crises which neressrcanraSutge 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 tha -bf its budget was consumed by the additional tosrorme-thillenniu - surge as an es2ecially difficult or rollercoaster year l____ ___ j money tollowing in August L·- - -- --- 1 r Dunng thezctp E r _O _int wees to d us_t tat programs - II r-•I 1 · --rere arrectea --inermpact qnnenucrmmon n- - _ L ---fimamg_was felt in a number of areas 1 I August2001 I 43 I C01525482 DCI Counterterrorist Center Staffing 1· · 1 I ICTC draws on employees from all four directorattb incorporates detailees from the Intelligence itv ICl 11 gJc1f 0 ent a ncies1 an e OIG views this ct1vers1ty as a'strength because it contributes 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 August2001 C01525482 -SECttE ' OCI Counterterrorist Center I r- jWhile Center employees consider budget resources to be adequate they are less sanguine that CTC has adeqpate personnel resources to effectively fulfill the mission I pf survey respondents believe that their work urut aoes not have sufficient personnel to accomplish the mission these figures are largely comparable with survey results from the rest of the DO and are symptomatic 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 sµ fficient personnel _ - 1 I AIG the responses were more evenly split t etween tnose who believed the group needed additional personnel resources and those who found the resources adequate L • fTC has limited options foLJl ealiDg__wifu th _is _ Qerce1Ye t l ersonnelshortage l - ------- mp1oyees are strercnea oy h n g shortage parnrurn rlv in those units that are chronically short-staffed Center management has redistribut oersonneLto_areas_Jt__ feels are facing the reatest demand 7 - - - - - - - - - - - _____J 1- µanagement 1s also trying to unprove tneL___effectiveness of the staff by addressing the skills mix issue which is discussed below in more detail ICenter employees are managing this perceived sh - or t ag e 1 n 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 longrange issues to get ahead of the terrorist An AIG analyst August2001 45 C01525482 OCI 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 r·- ----- I --1 fn r As discussed previously CTC's customers nwia l il_v id nJiJiajJ' Illt reas of CTC has takerfgrearstnaesTrf tecenryearstoatt racr anaretain 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 CTC's inception it relied almost exclusively on rota tees 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 --- l t• c o n •L U e j - rommmfljsto draw on DI and DO rotationaLofficers Jo ----- provide experience and regional expertise I 1 r ·J · L L m e r v 1 e w e e s rratTaiaVOra o m- 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 August2001 I C01525482 DCI Counterterrorist Center I August2001 47 C01525482 DCI Counterterrorist Center flCR J I - r sbll f H 48 August2001 C01525482 OCI Counterterrorist Center I · · 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 Ci dre of ualified counterterrorism specialists For instance ls focusing on training and developmental ass1gnmerlts including internal rotations and August2001 49 C01525482 OCI Counterterrorist Center r FINDINGS I f L- • 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 analysts and operations officers have expressed dissatisfaction with the career development guidance and training opportunities currently available to them • CTC managers lt Y e taken some _st e_2 s to address these concerns but --- they have not been adeqiialely commun1cateaananavcnac 1eed a comprehensive Center-based approach - -- RECOMMENDATION #3 For C CTC That CTC p are detailed written career guidance for each discrete CTC home-based occu ationl _____________ - - ___ _ 50 August2001 C01525482 I OCI Counterterrorist Center 5eCRW 1 Managing Contractors I 1 - CIC employ tontractors-or roughly the Center's fofalworkforce-who perform vifaI services -- 1 manage _________ l --- -- -- ------- -feach- -- governed by a different set of regulations August2001 ------ _____ _ __ _ __ __ _ _ L ---- - -- ---- - L---- -•-' 51 I C01525482 OCI Counterterrorist Center ·- The decentralized administration and diversity of contracts have made it difficult for Management Group to ensure faime arld consistency particularly as the number and variety of lcontracts have grown CTC management recogncies the problems in contract _ _ __ administration and has recently created a 52 August2001 C01525482 OCI Counterterrorist Center r position to provide centralized oversight 1 I I I UIG srrong1y em torses me creanoffor rrus'neW posmorranct recognizes that CTC's contract population would benefit from oversight and standardization I 1 - - I Diversity Issues The OIG found no pattern of gender or minority t nation ifl CTC The Center's workfClrc -·- --- ·-·--- -- - is roughly as diverse as the rest or tne Agency s population romponent survey respondents saw no gender or race preferences with regard to promotions assignments awards and other personnel actions These responses were slightly more positive than responses from other 00 and Agency com12_onents Cent er management should note however tha respondents who identify themselves as mmonty belleve that n o n - r receive pr f_E l '- _tlt f gard to _ personnel · y--- -' L LlL 1S 1 aware of this issue and has mdicareatnacne August2001 53 wni address it C01525482 J m o- o Z 2 mZ zG 0 _z oo z C015 5482 - SECftErf 1I OCI Counterterrorist Center 1 FINDINGS I AND RECOMMENDATIONS J August2001 1 C015 5482 OCI Counterterrorist Center I -- 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 • sizable numb_ Pf CTC analysts and operations officers have expressed dissatisfaction with the career development guidance and training opportunities currently available to them • CTC managellLhayeJaken some steps to address these concerns but r T - - Ptey have not been adequately communicated anon ave Iacicecf a comprehensive Center-based approach nRECOMMENDATION #3 For C CTC That CTC Lpfepare detailed written career guidance for each discrete CTC _ lt_ l 1' Sf 1 11p _ io ---- - ---1 I I i August2001 2 - ------------------- C01525482 i OCI Counterterrorist Center August 2001 3 C01525482 en 0 0 O m Qo 50 §- C01525482 DCI Counterterrorist Center SCOPE AND METHODOLOGY team ForidudedanTrispectiort ot ere rrom Seplemoer 2000ffirough 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 l ·• jfhe team gathered information for this report frominrerviews a CTC employee opinion survey a customer partner survey of DI and DO officers two focus groups and numerous documentE on a wide E 11 1 e- t pic _related to the Center's activities I ---- ---- August 2001 1 I C01525482 SEC'ftB - DCI Counterterrorist Center I 2 August2001 C01525482 C - m C01525482 1' 0i✓fffBEll IT Al OCI Counterterrorist Center Ii EMPLOYEE OPINION SURVEY As part of its inspection of the OCI Coumerterronst Lenter CTC the Office of Inspector General conducted a comoonent survey We distributed the survey questionnair to all ere careeristsboth working in arid on rotation 6utside the Centerand to personnel belonging to other Agency components but cµrr 11 tly rying in CTC j l ere L lk__ f ___ JThd_ebsurv eydit ms asses opjnions on a Ol Illuer o career an J e1c1t _ ttes August 2001 1 C01525482 • CONRDBl'iITI U 1I COfqfltOEPJTllaL ---- ·-·-··· j DCI Counterterrorist Center 2 August2001 C01525482 LLj OCI Counterterrorist Center August2001 c' ONFidfit J FI A 3 I ONPiBEJI JTI AI C01525482 I OCI Counterterrorist Center CONFIDl lfflA LA I _____ - - - - - - - - - 4 August2001 ·co1s 5482 - OCI Counterterrorist Center CONf'IDl'iMTI 4 I j ··1 August 2001 5 I I - I CONPIOJi t JTJAJ i CONFfOEN11 1eL DCI Counterterrorist Center 6 August2001 I '- VLJL J' f OL - eo e a w r rr1 A1 1 DCI Counterterrorist Center I r ' August2001 7 COUf1DJ J liJ I I I I • OCI Counterterrorist Center lONPltJ NTEAL CONflDlsl'il U I 8 August 2001 CONFJPB J k 1 DCI Counterterrorist Center I I • August2001 9 CONilPFNIJAT Ir ·