[Public Papers of the Presidents of the United States: George W. Bush (2004, Book III)]
[November 18, 2004]
[Pages 3003-3005]
[From the U.S. Government Publishing Office www.gpo.gov]



Memorandum on Strengthening Central Intelligence Agency Capabilities
November 18, 2004

Memorandum for the Director of Central Intelligence

Subject: Strengthening Central Intelligence Agency Capabilities

    The Final Report of the National Commission on Terrorist Attacks 
Upon the United States recommended:
      The Central Intelligence Agency (CIA) Director should emphasize 
        (a) rebuilding the CIA's analytic capabilities; (b) transforming 
        the clandestine service by building its human intelligence 
        capabilities; (c) developing a stronger language program, with 
        high standards and sufficient financial incentives; (d) renewing 
        emphasis on recruiting diversity among operations officers so 
        they can blend more easily in foreign cities; (e) ensuring a 
        seamless relationship between human source collection and 
        signals collection at the operational level; and (f) stressing a 
        better balance between unilateral and liaison operations.
    I approve and direct you to implement these recommendations, 
recognizing that significant progress has already been made in 
rebuilding the CIA's capabilities under the Strengthening Intelligence 
Initiative and the Director of Central Intelligence's (DCI) Strategic 
Direction, especially with respect to all-source analysis, clandestine 
operations, information sharing, and foreign languages.
    Working within the framework established by the Strengthening 
Intelligence Initiative, I direct you to implement within the CIA 
measures to:
       (1)  Further strengthen the core capabilities of the CIA to meet 
            the intelligence challenges presented by international 
            terrorism, the proliferation of weapons of mass destruction 
            (WMD), and other critical national security issues, 
            including, but not limited to, its capabilities to:

       (a)  Perform all-source intelligence analysis that, among other 
            qualities, routinely considers, and presents to national 
            security policymakers, diverse views;

       (b)  Conduct clandestine collection operations involving human 
            sources and technical methods unilaterally, with other 
            elements of the Intelligence Community, and with foreign 
            partners, and conduct covert action operations as directed 
            by the President;

       (c)  Share information rapidly and proactively with other 
            agencies of the United States Government, including 
            specifically those responsible for national security and 
            homeland security, while protecting the sources and methods 
            of its collection from unauthorized disclosure, giving top 
            priority to support of governmental actions to detect, 
            prevent, preempt, and disrupt terrorist threats and attacks 
            on the United States, its people, and its allies and 
            interests around the globe; and

       (d)  Collect, process, analyze, and disseminate intelligence 
            information using personnel proficient in foreign languages, 
            and develop information technology tools to assist in 
            effective processing and use of foreign language 
            information.

       (2)  Ensure that the CIA processes, shares, and disseminates to 
            the President, Vice President in the performance of 
            Executive functions, and other appropriate officials in the 
            executive branch, including the heads of departments and 
            agencies with elements in the Intelligence Community, 
            terrorism

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            information and other information relevant to national 
            security and homeland security including as directed by 
            Executive Order 13356 of August 27, 2004, entitled 
            ``Strengthening the Sharing of Terrorism Information to 
            Protect Americans.''
    Building on levels attained under the DCI's Strategic Direction I, 
measures implemented in accordance with the foregoing shall include, but 
not be limited to, actions to:
       (1)  Strengthen CIA intelligence analysis capabilities 
            substantially and promptly through actions to:
       (a)  Increase, as soon as feasible, the number of fully 
            qualified, all-source analysts by 50 percent;
       (b)  Assign fully qualified, all-source analysts in a manner that 
            strengthens CIA and Intelligence Community analytical 
            capabilities focused on terrorism, proliferation of WMD, the 
            Near East and South Asia, and other key strategic areas in 
            Asia, while maintaining substantial analytical capabilities 
            focused on other issues and regions;
       (c)  Increase investment in development of their analytic 
            expertise, field experience, and training in advanced 
            analytical methods, including for geospatial analysis; and
       (d)  Continue to acquire and develop tools that enable analysts 
            to connect to counterparts inside and outside of government, 
            increase the speed of the analytic workflow, and deal with 
            the rapidly increasing volume of all-source information.
       (2)  Strengthen CIA human intelligence operations capabilities 
            substantially and promptly through actions to:
       (a)  Increase, as soon as feasible, the number of fully qualified 
            officers in the Directorate of Operations by 50 percent;
       (b)  Ensure that a majority of these officers are collectors 
            drawn from diverse backgrounds with the skills, experience, 
            and training needed for the effective conduct of human 
            intelligence operations;
       (c)  Assign substantial numbers of these officers to collection 
            missions reflecting the priorities established through the 
            National Intelligence Priorities Framework; and
       (d)  Integrate effectively, as appropriate to particular 
            collection activities, human intelligence collection 
            capabilities and signals and other technical intelligence 
            collection capabilities.
       (3)  Improve the foreign language capabilities of the CIA through 
            actions to:
       (a)  Increase, as soon as feasible, the number of CIA officers 
            tested and proficient in mission-critical languages by 50 
            percent; and
       (b)  Develop and employ information technology tools to assist in 
            processing and use of information in foreign languages.
       (4)  Fully implement directives concerning information sharing, 
            information technology, information privacy, and security 
            including Executive Order 13354 of August 27, 2004, entitled 
            ``National Counterterrorism Center'' and Executive Order 
            13356.
       (5)  Double, as soon as feasible, the number of officers who are 
            engaged in research and development to find new ways to 
            bring science to bear in the war on terrorism, countering 
            the proliferation of WMD, and against new and emerging 
            threats.
    I direct you to submit to me within 90 days from the date of this 
memorandum, through the Assistant to the President for National Security 
Affairs and the Director of the Office of Management and Budget, a 
detailed budget and implementation plan, including performance measures, 
with

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timelines for achievement of specific, measurable goals. In addition to 
the capabilities enumerated above, this plan shall also include a 
description, with appropriate performance measures, of steps underway at 
the CIA to develop and implement new collection strategies against 
difficult targets, to integrate human and technical collection tools, to 
assure appropriate access by analysts to information on the sources of 
critical intelligence reporting, to expand relationships with experts 
outside of government and otherwise ensure diverse views are routinely 
reflected in finished intelligence products. A copy of this plan will be 
provided to the Commission on the Intelligence Capabilities of the 
United States Regarding Weapons of Mass Destruction, which will advise 
me on the adequacy of the plan, especially with respect to countering 
the threat posed by WMD. Beginning in June 2005, I direct you to report 
to me at least semi-annually, through the Assistant to the President for 
National Security Affairs and the Director of the Office of Management 
and Budget, on progress made implementing this memorandum.
    This memorandum shall be implemented subject to the availability of 
appropriations and in a manner consistent with applicable law, including 
the Constitution and laws protecting the freedom and information privacy 
of Americans.

                                                          George W. Bush

Note: This memorandum was released by the Office of the Press Secretary 
on November 23.