[excerpts on intelligence policy] 111th Congress Report 1st Session HOUSE OF REPRESENTATIVES 111-230 _______________________________________________________________________ DEPARTMENT OF DEFENSE APPROPRIATIONS BILL, 2010 __________ R E P O R T of the COMMITTEE ON APPROPRIATIONS [to accompany H.R. 3326] July 24, 2009.--Committed to the Committee of the Whole House on the State of the Union and ordered to be printed INFORMATION OPERATIONS The budget request includes nearly one billion dollars for Department of Defense information operations (IO) programs. The Committee has serious concerns about not only the significant amount of funding being spent on these programs, but more importantly, about the Department's assumption of this mission area within its roles and responsibilities. Much of the content of what is being produced, and certainly some of the largest cost drivers in these programs, is focused so far beyond a traditional military information operation that the term non- traditional military information operation does not justly apply. At face value, much of what is being produced appears to be United States Military, and more alarmingly non-military propaganda, public relations, and behavioral modification messaging. The Committee questions the effectiveness of much of the material being produced with this funding, the supposed efforts to minimize target audience knowledge of United States' Government sponsorship of certain production materials, and the ability of the Department to evaluate the impact of these programs. The Committee also notes that the official budget justification materials for requested funding of this magnitude are woefully inadequate. In addition, the Department's response to attempts by the Committee to obtain a meaningful explanation of funding for these programs clearly indicates that Departmental oversight of these efforts is disorganized, and that a thorough understanding of their scope within the Department's leadership is incomplete. According to the Department's limited response for information on this funding, IO programs have grown at an enormous rate, from approximately $9,000,000 in fiscal year 2005, to a staggering $988,000,000 request for fiscal year 2010. The requested growth in these programs from fiscal year 2009 to fiscal year 2010 alone is just over $200,000,000. The Committee believes that the Department of Defense, and the Combatant Commands which drive the demand for information operations, need to reevaluate IO requirements in the context of the roles and missions of the United States Military along with consideration for the inherent capabilities of the military and the funding available to meet these requirements. In support of this evaluation, the Committee has determined that many of the ongoing IO activities for which fiscal year 2010 funding is requested should be terminated immediately. The programs for which funding is specifically denied are identified in the classified annex to this report. Accordingly, the Committee has reduced requested funding for information operation programs in the various Service appropriations accounts in which they have been requested by a total of $500,000,000. Of the remaining funds provided for information operations, the Committee directs that no funds shall be obligated or expended until 30 days after the Secretary of Defense submits a report to the Committees on Appropriations of the House of Representatives and the Senate on the Department's IO programs. This report should encompass the period from fiscal years 2005 through 2010 and include all Department of Defense information operation programs for which base budget, supplemental, or overseas contingency operation funds have been appropriated or requested. The report shall include: program strategies, target audiences, goals, and measures of effectiveness; budget exhibits at the appropriations account and sub-activity level; spend plans (including positions and other direct costs); and production and dissemination mechanisms and locations. The report shall also include an annex for the inclusion of necessary explanatory and supporting classified information. The Secretary shall submit this report in writing not later than 180 days after enactment of this Act. [...] SPECIAL OPERATIONS FORCES--PROCESSING, EXPLOITATION, AND DISSEMINATION CAPABILITIES MODERNIZATION The Committee is concerned about the urgent need for the modernization of Special Operations Forces' (SOF) capabilities to process, exploit, and disseminate critical operational intelligence from deployed locations overseas and specifically within the theater of operations. The immediacy of this requirement was communicated to the Committee by SOF operators during multiple visits to both Afghanistan and Iraq. Ongoing SOF operations demonstrate the ability to collect significant amounts of pocket litter, hard copy documents, hard drives, cell phones, and other important hard copy and electronic media with significant intelligence value. However, without specialized expeditionary processing, this information becomes inaccessible and of no value to SOF in immediate urgent operational missions, and over the longer term to the war fighter, the intelligence community and others in need of access. To address this requirement, the Committee has provided an additional $14,900,000 in funding for acquisition and development of improved processing, exploitation, and dissemination capabilities--$6,900,000 in ``Procurement, Defense-Wide'', and $8,000,000 in ``Research, Development, Test and Evaluation, Defense-Wide''. Procurement funding is provided for acquisition of multi- discipline intelligence processing, exploitation and dissemination capabilities intended to meet Special Operations Command's unfunded requirement for full motion video exploitation. The funding will enable SOF to rapidly search and exploit accumulated tactical intelligence in support of operational decision-making and planning. Funding provided for Distributed Common Ground/Surface System (DCGS) capabilities modernization in the DCGS research, development, test and evaluation program shall be used to address requirements for integrating multi-function intelligence processing, exploitation and dissemination capabilities into the SOF information enterprise and the DCGS architecture. This funding is also provided to develop a DCGS tool for SOF to expand the capability to exploit documents and media for tactical and timely intelligence in forward deployed operations. The Committee believes that allowing larger volumes of data to be captured and processed more quickly while in the field will enable vastly improved support to not just SOF but all deployed war fighter operations. [...] 30-YEAR SPACE SYSTEM INVESTMENT STRATEGY The Committee is concerned that there is no clear path for space system investment. The Committee strongly believes that an annual long-range plan for space system investment will provide a necessary roadmap for future government and industrial base investments. The Committee envisions this long- range plan be structured like the Annual Long-Range Plan for Construction of Naval Vessels. Similarly, this plan should contain information on the research, development, test and evaluation, as well as, the procurement, including schedule and funding profiles, for all Department of Defense and Intelligence Community National Security Space Systems, including ground systems for the next 30 years. The Committee also expects the plan to include individual acquisition plans that provide descriptions of the programs and how these systems will meet the national security needs described in the most recent Quadrennial Defense Review and Space Posture Review. The report should also include the estimated levels of annual funding necessary to carry out the programs as well as a discussion of the acquisition strategies on which such estimated levels of annual funding are based to include both military and national intelligence funding. Because the long-range space investment strategy is dependent on the state of the space industrial base, the Committee recommends the Department of Defense Cost Assessment and Program Evaluation (CAPE) office continue with the current studies and projects on the Space Industrial Base and begin other industrial base analysis efforts such as shipbuilding. The Committee directs the Secretary of the Air Force and the Director of the National Reconnaissance Office, in coordination with the Secretary of Defense and the Director of National Intelligence, to deliver the 30-year Space System Investment Strategy to the congressional defense and intelligence committees by March 1, 2010. As necessary, the report should contain a classified appendix. Finally, the Committee also recognizes that good planning requires good budgeting and oversight mechanisms. For the past two years, the Committee has directed the Secretary of Defense to create a major force program category for space. The Committee expects that the space major force program will be implemented by the submission of the fiscal year 2011 budget. [...] VOICE ANALYSIS FOR TRUTH VERIFICATION AND DETECTION OF DECEIT The Secretary of Defense shall provide a report to the congressional defense committees on memos, letters, and After Action Field Reports supporting the use of security level technologies designed for truth verification and detection of deceit through voice analysis. The report shall be submitted not later than 90 days after enactment of this Act. [...] SEA-BASED X-BAND RADAR The mission of the Sensors Program is to efficiently develop, acquire, test, field and operate an integrated sensor enterprise. However, the Committee is concerned that there are large unobligated and unexpended balances after fiscal year 2009, the first year of execution for the program element. The Committee is also concerned that GTD-04 has already slipped to the first quarter of fiscal year 2011. Therefore, the Committee has reduced the Sea-Based X-Band Radar request by $13,000,000. [...] TITLE VII RELATED AGENCIES NATIONAL AND MILITARY INTELLIGENCE PROGRAMS The National Intelligence Program and the Military Intelligence Program budgets funded in the Department of Defense Appropriations Act consist primarily of resources for the Director of National Intelligence including the Intelligence Community Management staff, the Central Intelligence Agency (CIA), the Defense Intelligence Agency, the National Reconnaissance Office, the National Security Agency, the National Geospatial-Intelligence Agency, the intelligence services of the Departments of the Army, Navy, Air Force, and Marine Corps and the CIA Retirement and Disability fund. CLASSIFIED ANNEX The Committee's budget reviews are published in a separate detailed and comprehensive classified annex. The intelligence community, Department of Defense and other organizations are expected to fully comply with the recommendations and directions in the classified annex accompanying the Department of Defense Appropriations Act, 2010. As directed by House Resolution 35, the recommendations of the Select Intelligence Oversight Panel are incorporated as recommendations to the House Appropriations Committee, Subcommittee on Defense, in the accompanying classified annex. CENTRAL INTELLIGENCE AGENCY RETIREMENT AND DISABILITY SYSTEM FUND Fiscal year 2009 appropriation........................ $279,200,000 Fiscal year 2010 budget request....................... 290,900,000 Committee recommendation.............................. 290,900,000 Change from request................................... ................ This appropriation provides payments of benefits to qualified beneficiaries in accordance with the Central Intelligence Agency Retirement Act of 1964 for Certain Employees (P.L. 88-643), as amended by Public Law 94-522. This statute authorized the establishment of the CIA Retirement and Disability System (CIARDS) for certain employees and authorized the establishment and maintenance of a fund from which benefits would be paid to those beneficiaries. The Committee recommends the budget request of $290,900,000 for the Central Intelligence Agency Retirement and Disability System fund. This is a mandatory account. INTELLIGENCE COMMUNITY MANAGEMENT ACCOUNT Fiscal year 2009 appropriation........................ $710,042,000 Fiscal year 2010 budget request....................... 672,812,000 Committee recommendation.............................. 611,002,000 Change from request................................... -61,810,000 The Committee recommends an appropriation of $611,002,000 for the Intelligence Community Management Account, a decrease of $61,810,000 below the budget request. Of the amount appropriated under this heading, $24,000,000 may be transferred to the Executive Office of the President for the Program Manager for Information Sharing. The total program recommended in the bill will provide the following in fiscal year 2010: EXPLANATION OF PROJECT LEVEL ADJUSTMENTS [in thousands of dollars] ---------------------------------------------------------------------------------------------------------------- Committee Change from Budget request recommended request ---------------------------------------------------------------------------------------------------------------- Intelligence Community Management Account....................... 672,812 611,002 -61,810 Classified Adjustment....................................... .............. -64,810 Language Mentorship Program incorporating an electronic .............. 1,000 portfolio.................................................. Counter-Threat Finance--Global.............................. .............. 2,000 ----------------------------------------------- Total, ICMA............................................. 672,812 611,002 -61,810 ---------------------------------------------------------------------------------------------------------------- THE INTELLIGENCE COMMUNITY'S BUSINESS TRANSFORMATION OFFICE The Committee appreciates the progress the Business Transformation Office (BTO) has made in the last year to the Intelligence Community's business systems and looks forward to continued progress to address these issues. The Committee has included a funding transfer of the Financial Improvement Group to the BTO and the Committee supports the efforts made by BTO in creating the May 2009 BTO strategy. The Committee is concerned that recent changes to place the BTO under the Chief Information Office may not result in the necessary level of emphasis and attention to these issues by senior management within the Office of the Director of National Intelligence and within the Intelligence Community. The Committee requests that the Director of National Intelligence review this recent change and take the necessary steps to ensure that BTO initiatives are successfully implemented. The Director of National Intelligence is directed to report to the Committee on the actions taken to ensure that these concerns are addressed. The Committee remains concerned that the Office of the Director of National Intelligence, the National Geospatial- Intelligence Agency, the Central Intelligence Agency, the National Security Agency, the Defense Intelligence Agency, and the National Reconnaissance Office cannot receive unqualified or ``clean'' financial audit opinions. This reality is even more concerning considering the Intelligence Community spends over a quarter billion dollars annually on ``financial management,'' which does not include other business systems and processes like procurement, human resources, or logistics. Therefore, within 90 days of enactment of this Act, the Committee directs the Director of National Intelligence to submit a report that: 1) addresses the acquisition challenges facing the Business Transformation Office; 2) explains where the most efficient and secure place to store the Community's business data will be for the foreseeable future; and 3) review the process for hiring highly qualified experts and provide recommendations that streamline the current bureaucratic process to one that allows the Director of the Business Transformation Office to efficiently build an effective staff. Finally, the report should provide a target date when all National Intelligence Program funds will achieve a sustainable unqualified audit opinion. [...] INTELLIGENCE COMMUNITY EDUCATION AND TRAINING STRATEGIC DESIGN The Committee continues to be concerned with the lack of a strategic plan when it comes to the Intelligence Community's professional education curriculum and supporting training programs. The current patchwork of academies, courses, language training efforts and schools is the result of multiple programs and initiatives instead of a coherent strategy. The Director of National Intelligence needs to benchmark successful programs like the Department of Defense's National Defense University and develop an appropriate educational and professional development strategy for the Intelligence Community that creates an innovative and competitive 21st century professional intelligence workforce. The Committee would like to see steps taken to establish the Intelligence Community's cap-stone school in a manner that takes best advantage of opportunities for learning synergies and a transformative learning environment with other national security students. Also, the Committee directs that steps be taken to evolve the National Defense Intelligence College to a fee-for-service program so that both Congress and the executive branch can be assured that there is still a true demand for the product being provided. [...] HUMAN LANGUAGE TECHNOLOGY The Committee directs the Director of National Intelligence to submit to the congressional intelligence committees within 120 days of enactment of this Act, a report on the status of Human Language Technology (HLT) within the Intelligence Community. The report shall identify an intelligence community executive agent responsible for the coordination of research, development, and implementation of HLT initiatives, identify current HLT capabilities and their return on investment, project future HLT requirements, and describe efforts to implement community licensing.