background image
service, Congress concentrated its efforts on a "passenger bill of rights," to
improve capacity, efficiency, and customer satisfaction in the aviation system.
There was no focus on terrorism.
63
3.4 . . . AND IN THE INTELLIGENCE COMMUNITY
The National Security Act of 1947 created the position of Director of Central
Intelligence (DCI). Independent from the departments of Defense, State, Justice,
and other policy departments,the DCI heads the U.S.intelligence community and
provides intelligence to federal entities.
The sole element of the intelligence community independent from a cab-
inet agency is the CIA.As an independent agency, it collects, analyzes, and dis-
seminates intelligence from all sources.The CIA's number one customer is the
president of the United States, who also has the authority to direct it to con-
duct covert operations.
64
Although covert actions represent a very small frac-
tion of the Agency's entire budget, these operations have at times been
controversial and over time have dominated the public's perception of the CIA.
The DCI is confirmed by the Senate but is not technically a member of the
president's cabinet.The director's power under federal law over the loose, con-
federated "intelligence community" is limited.
65
He or she states the commu-
nity's priorities and coordinates development of intelligence agency budget
requests for submission to Congress.
This responsibility gives many the false impression that the DCI has line
authority over the heads of these agencies and has the power to shift resources
within these budgets as the need arises. Neither is true. In fact, the DCI's real
authority has been directly proportional to his personal closeness to the presi-
dent, which has waxed and waned over the years, and to others in government,
especially the secretary of defense.
Intelligence agencies under the Department of Defense account for
approximately 80 percent of all U.S. spending for intelligence, including some
that supports a national customer base and some that supports specific Defense
Department or military service needs.
66
As they are housed in the Defense
Department, these agencies are keenly attentive to the military's strategic and
tactical requirements.
One of the intelligence agencies in Defense with a national customer base
is the National Security Agency, which intercepts and analyzes foreign com-
munications and breaks codes.The NSA also creates codes and ciphers to pro-
tect government information. Another is the recently renamed National
Geospatial-Intelligence Agency (NGA), which provides and analyzes imagery
and produces a wide array of products, including maps, navigation tools, and
surveillance intelligence. A third such agency in Defense is the National
Reconnaissance Office. It develops, procures, launches, and maintains in orbit
86
THE 9/11 COMMISSION REPORT
Final1-4.4pp 7/17/04 9:12 AM Page 86