The History of the NRO (Part 2)
The NRO Charter
The original charter of the organization, which probably went into effect
with Charyk’s assumption of the Directorship, remains classified. The
responsibilities of the NRO were again formally established in June 14,
1962 in a still-classified Department of Defense Directive. They were
rewritten in March 1964. This Directive, dated March 27, 1964, outlines
the general organization and responsibility of the NRO, and describes its
relationships with other government agencies. This directive apparently
remained in place for at least the next fifteen years, since an October 3,
1979 amendment refers to the original DoD Directive of March 27, 1964. A
1992 Freedom of Information Act request for the current charter of the NRO
produced this document, so it is apparently still in effect. The charter
is included as Appendix A.
Organizational Structure of the NRO
It is not clear how the early NRO was laid out. From the beginning it may
have simply been the Under Secretary of the Air Force and the CIA Deputy
Director for Science and Technology and below them the individual
satellite program heads. However, at some point the NRO developed its
rather unique "Program" structure. These consisted of "Program A," the
Air Force program office, and "Program B," the CIA program office.
Program A was the Air Force Office of Special Programs, which had
developed out of the SAMOS program office. Program B was officially
headed by the CIA’s Deputy Director of Science and Technology, who was
also the Deputy Director of the NRO. But apparently in day-to-day
operations Program B was really run by the CIA’s Director of Development
and Engineering.
Some time in the early to mid 1960s, a third program office was added to
the NRO’s structure. Labled "Program C," this was the Navy’s attempt to
get into the satellite intelligence game. But the Navy program apparently
never really advanced for quite some time. Various Navy proposals,
including a space-based radar system for locating enemy ships at sea, were
struck down. Program C continued to exist, first housed apparently in a
branch of the Navy known as the Navy Space Project of the Naval
Electronics System Command, or "NAVALEX," and later in the Space and Naval
Warfare Systems Command, under the Space Technical Directorate at the
Naval Research Laboratory. But it wasn’t until the second half of the
sixties when the Navy was finally successful in arguing in favor of
developing a passive ocean surveillance system. For many years this
remained a limited mission for the service and the CIA and Air Force
continued to dominate the NRO structure.
The NRO and Airborne Reconnaissance
By the mid 1960s the NRO was restructured again and a fourth program
office was added. This was appropriately enough labled "Program D" and
was run by the Air Force. Program D had responsibility for U-2 and SR-71
Blackbird reconnaissance. The other classified airborne reconnaissance
platform, the A-12 (which had actually predated the SR-71 program), was
operated by the CIA until 1968 and probably fell under the control of
Program B. The NRO had been responsible for U-2 overflights during the
Cuban missile crisis in 1962, but it wasn’t until at least several years
later that Program D was created to control Air Force airborne
reconnaissance. In 1969 a decision was made to turn airborne
reconnaissance over to the Strategic Air Command and thus Program D was
disbanded.
When the NRO was finally declassified in 1992, the press release which
announced it stated "The mission of the NRO is to ensure that the U.S. has
the technology and spaceborne and airborne assets needed to acquire
intelligence world-wide, including to support such functions as monitoring
of arms control agreements, indications and warning and the planning and
conduct of military operations." (emphasis added). During the 1980s
there was much speculation that the United States was developing a new
hypersonic reconnaissance aircraft to replace the SR-71 Blackbird. No
such aircraft has appeared and reports of mystrerious sonic booms and
unusual contrails have diminished in recent years. It is more likely that
the NRO was responsible at least in part for the CIA’s unmanned aerial
vehicle program before the creation of the Defense Airborne Reconnaissance
Office in November 1993. This program consists of different types of
UAV’s classified as "Tier 1," "Tier 2," "Tier 2+," etc. "Tier 3," also
called the Advanced Airborne Reconnaissance System, referred to a large
stealth UAV with a long loiter time over its target. The Tier 3 UAV was
originally supposed to have a wingspan of 150 feet and be capable of
loitering over its target for up to eight hours. It was cancelled due to
its price tag some time in either 1991 or 1992 and has now been replaced
by a smaller version known as "Tier 3-." It is likely that the NRO had
some hand in the development of this vehicle as well as the other programs
since the most likely place to manage this procurement in the CIA is
within the NRO.
NRO Restructuring After the Cold War
Most of the early photoreconnaissance satellite programs developed by the
NRO were apparently handled within Program B at the CIA. In fact, the Air
Force apparently did not make strong inroads into the satellite
reconnaissance field until it developed the close-look satellite series
which was first launched in July 1963. The Air Force also apparently
managed many of the early signals intelligence satellites fielded by the
NRO. The two Programs constantly competed for the development and
management of satellite programs throughout their history.
No information exists on the NRO’s organization for the next two decades.
However, several recently declassified documents do indicate that the NRO
came under increasing criticism in the late 1980s. On July 3, 1989,
Director of Central Intelligence William H. Webster and Secretary of
Defense Richard B. Cheney sent a letter to Senator David L. Boren,
Chairman of the Senate Select Committee on Intelligence. In the letter
they detailed a number of changes they planned on making to the NRO.
These changes included: forming a Joint Senior Advisory Board (later
renamed the National Reconnaissance Review Board) to advise the DCI,
Secretary of Defense, and Director of NRO on NRO issues; designating the
CIA’s Director of Development and Engineering as Director of Program B
(essentially formalizing the command structure that already existed); and
establishing within the NRO a Deputy Director for Command Support (later
renamed the Deputy Director for Military Support) to improve NRO support
to the military.
In February 1990, Webster and Cheney sent Boren a report completed in
January concerning a restructuring of the NRO. This report included
recommendations from the Director of the NRO, Martin Faga, that at least
part of the NRO’s wide-ranging facilities be collocated at the same site,
but that no major reorganization take place. Webster and Cheney stated:
"Additionally, we reaffirm our previous conviction, supported by the
DNRO’s current reassessment, that a business-line structure, that would
attempt to give each Program Office the responsibility for a unique
mission area, is neither a viable or effective restructure alternative.
We want to preserve a beneficial degree of competition between the Program
Offices and the ability to apply the resources of all three Program
Offices, as appropriate, to a problem. Competition is also vital to
sustaining the motivation of the Program Offices and our ability to
develop creative solutions to intelligence requirements."
The overall NRO management structure, consisting of Programs A, B and C
remained unchanged until 1992, when, apparently bowing to continuing
Congressional pressure, the organization was overhauled and reorganized,
possibly giving each of the Program Offices responsibility for a unique
mission, as mentioned in Webster and Cheney’s letter. An outline of the
changes in the NRO’s organizational structure is included as Appendix B.
The officially declassified organizational structure of the NRO today is
included as Appendix C.
Conclusion
Despite the declassification of the NRO, little information has been
revealed of its early history. The number of documents released as a
result of Freedom of Information Act requests can be counted on two hands.
To date, the original charter of the NRO has yet to be declassified.
Hopefully, with continued effort by historians, more will be revealed of
the early history of this extremely important organization.
Acknowledgement
The author would like to acknowledge the assistance of Jeffrey Richelson,
who provided some of the information on the organizational structure of
the NRO included in this paper.
(the limitations of this software prevent me from posting it in the same
form as on my computer and I don’t want to go in and manually include all
the footnote numbers, but I am including the footnotes for those of you
interested in the sources for this paper as well as additional comments)
Footnotes
George Kistiakowsky, A Scientist in the White House, Harvard University
Press, 1976, p. 245.
Ibid., p. 336.
Ibid., p. 344.
Ibid., p. 347. Kistiakowsky may also be referring to the CIA’s
satellite program when discussing the SAMOS program, since he makes no
separate mention of the CIA program by name.
Ibid., pp. 387-388.
Presidential Directive/NSC-55, "Intelligence Special Access Programs:
Establishment of the APEX Program," January 10, 1980. This document was
intended to end the special access system for classified information and
replace it with a new system known as APEX. It refers to a document
establishing special access programs as a "Presidential memorandum of
August 26, 1960."
Vincent Kiernan, "Faga: Cutting Defense Threatens Crucial Spy Satellite
Capabilities," Space News, March 8-14, 1993, p. 10.
Usually, the Under Secretary of the Air Force was also the Director of
NRO, but this was not always the case. Charyk served from September 6,
1961 to March 1, 1963. He was succeeded by Brockway McMillian, who served
until October 1, 1965. McMillian was followed by Alexander H. Flax, who
served until March 11, 1969 and held the title of Assistant Secretary of
the Air Force for Research and Development. On March 17, 1969, John L.
McLucas took over the position and served until December 20, 1973. James
W. Plummer then served until June 28, 1976. Thomas C. Reed took the
position on August 9, 1976 and served until April 7, 1977. All held the
position of Under Secretary of the Air Force. For almost three months the
NRO lacked a Director until the Under Secretary of the Air Force, Hans
Mark, took over on August 3, 1977 and served until October 8, 1979. Mark
was later promoted to Secretary of the Air Force and took the Directorship
with him. He was followed by Robert J. Hermann, who was Assistant
Secretary of the Air Force for Research, Development, and Logistics, who
served until August 2, 1981. The Under Secretary of the Air Force,
Antonia Chayes, either knew little of reconnaissance satellites or was
denied the position because she was female. Hermann was replaced by
Edward C. Aldridge Jr., who served from August 3, 1981, to December 16,
1988–the longest time of any single director. Aldridge also started out
as Under Secretary of the Air Force, but later became Secretary of the Air
Force, and like Mark, taking the Directorship of the NRO with him. Martin
Faga took over Directorship of the NRO on September 26, 1989, serving
until March 5, 1993. Faga was the first person to be given the
unclassified title of Assistant Secretary of the Air Force for Space.
What followed then was an extended period during which the NRO was without
a Director. The longtime Deputy Director, Jimmie Hill, took over
responsibilities of the Director until a new person could be found. In
May 1994 Jeffrey K. Harris, who had risen up through the ranks of the NRO
and headed one of its major satellite projects, took over as head of the
secretive organization.
This amendment, originally classified "Top Secret," states that the NRO
shall: "Work directly with the Defense Space Operations Committee (DSOC)
on policy, budgets, requirements and programs. The Defense Space
Operations Committee is the principal advisory body to the Secretary of
Defense for the National Reconnaissance Program. (Its members include the
Deputy Under Secretary of Defense for Policy Review; the Assistant
Secretary of Defense for Communications, Command, Control and
Intelligence; and the Secretary of the Air Force who will be the Chairman
of the Committee.) The Director shall respond to tasks approved by the
Defense Space Operations Committee and will keep the DSOC informed, on a
regular basis, on the status of projects of the National Reconnaissance
Office." Harold Brown, Secretary of Defense, Memorandum for Distribution,
"National Reconnaissance Office," October 3, 1979. Contained in the
Documentary History Collection at the Space Policy Institute.
Department of Defense Directive, Number TS 5105.23, "National
Reconnaissance Office," March 27, 1964. Contained in the Documentary
History Collection at the Space Policy Institute.
Originally this was the Office of Special Activities, then the Deputy
Director of Research and then the Deputy Director of Science and
Technology. Jeffrey Richelson, The U.S. Intelligence Community, 2nd
Edition, Ballinger Publishing Company, Cambridge, Massachusetts, 1989, pp.
26-29.
Ibid.
National Reconnaissance Office, "NRO Management Restructure – 1960′s,"
n.d. (declassified in September 1994).
Memorandum of MONGOOSE Meeting Held on Thursday, October 4, 1962,"
October 4, 1962, contained in: The Cuban Missile Crisis, 1962, Project
Editor: Laurence Chang, National Security Archive & Chadwyck-Healey,
Alexandria, VA, 1990.
U.S. Department of Defense, "Memorandum for Correspondents," No 264-M,
September 18, 1992.
The code-name "Aurora" has been applied to this aircraft. However, it
has now been revealed that this code-name was actually applied to the
funding for the competition for the B-2 bomber. See Ben R. Rich and Leo
Janos, Skunk Works: A Personal Memoir of My Years at Lockheed, Little,
Brown and Company, Boston, 1994, pp. 309-310.
Neil Munro, "Taking Off: A New Airborne Reconnaissance Office Hits the
Pentagon," Armed Forces Journal International, June 1994, p. 46. Also:
David A. Fulghum, "Secret Flying Wing Slated for Rollout," Aviation Week &
Space Technology, September 19, 1994, p. 27.
William H. Webster, Director of Central Intelligence, and Richard B.
Cheney, Secretary of Defense, to the Honorable David L. Boren, Chairman,
Select Committee on Intelligence, United States Senate, February 26, 1990.
This letter was declassified in August 1994 as a result of the
controversy surrounding the declassification of the Westfields NRO
headquarters complex.
Ibid., p. 2.
Another of the new revelations to emerge from the Congressional hearings
in August 1994 was the NRO’s seal. This seal was developed after the
decision was made to declassify the organization in 1992. It was approved
by former NRO Director Martin Faga in February or March 1993 and
registered with the Institute of Heraldry. It is not clear if there was
another, classified, NRO seal before this one.
–
Dwayne A. Day
Space Policy Institute
George Washington University
Washington, DC 20052