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Cover
================================================================ COVER
Report to the Chairman, Subcommittee on National Security,
International Affairs, and Criminal Justice, Committee on Government
Reform and Oversight House of Representatives
June 1998
DRUG CONTROL - AN OVERVIEW OF U.S.
COUNTERDRUG INTELLIGENCE
ACTIVITIES
GAO/NSIAD-98-142
Drug Control
(701121)
Abbreviations
=============================================================== ABBREV
CIA - Central Intelligence Agency
CNC - Crime and Narcotics Center
DAICC - Domestic Air Interdiction Coordination Center
DCI - Director of Central Intelligence
DEA - Drug Enforcement Administration
DIA - Defense Intelligence Agency
DOD - Department of Defense
EPIC - El Paso Intelligence Center
FBI - Federal Bureau of Investigation
FinCEN - Financial Crimes Enforcement Network
FORSCOM - Forces Command
FTE - full-time equivalent
HIDTA - High Intensity Drug-Trafficking Areas
INR - Bureau of Intelligence and Research
JIATF - Joint Interagency Task Force
JTF - Joint Task Force Six
LNO - Liaison Officers
NDAA - National Defense Authorization Act
NDIC - National Drug Intelligence Center
NIMA - National Imagery and Mapping Agency
NSA - National Security Agency
ONDCP - Office of National Drug Control Policy
ONI - Office of Naval Intelligence
RISS - Regional Information Sharing System
SAC - special-agent-in-charge
TAT - Tactical Analysis Team
Letter
=============================================================== LETTER
B-278200
June 25, 1998
The Honorable J. Dennis Hastert
Chairman, Subcommittee on National Security,
International Affairs, and Criminal Justice
Committee on Government Reform
and Oversight
House of Representatives
Dear Mr. Chairman:
In your letter of June 6, 1997, you asked us to evaluate federal
counterdrug intelligence coordination efforts. We agreed that we
would identify the (1) organizations that collect and/or produce
counterdrug intelligence, (2) role of these organizations, (3)
federal funding they receive, and (4) number of personnel that
support this function. Appendix I includes information on the
statutory or other authority for each organization's mission and
details on each organization's role, funding, and personnel, as
reported to us by the organizations. This report does not include
information on classified federal counterdrug intelligence programs.
BACKGROUND
------------------------------------------------------------ Letter :1
According to Presidential Decision Directives, the Director of
Central Intelligence, the President's Office of National Drug Control
Policy (ONDCP), and others, illegal drug-trafficking is a threat to
U.S. national security. The National Drug Control Strategy, issued
annually by ONDCP, identifies the reduction of illegal drug use as
its overall goal. The strategy links the success of this effort, in
part, to the U.S. counterdrug intelligence program and makes
intelligence one of the strategy's key drug functions.
As part of the national strategy, ONDCP established five goals to
reduce illegal drug use:
1. Educate and enable America's youth to reject illegal drugs as
well as alcohol and tobacco.
2. Increase the safety of America's citizens by substantially
reducing drug-related crime and violence.
3. Reduce health and social costs to the public of illegal drug use.
4. Shield America's air, land, and sea frontiers from the drug
threat.
5. Break foreign and domestic drug sources of supply.
Counterdrug intelligence plays an important role in the execution of
the strategy and supports three of the strategy's five goals--goals
2, 4, and 5. Appendix II identifies which goal each counterdrug
intelligence organization supports.
In drug-trafficking investigations, interdiction activities, and
efforts to dismantle major drug-trafficking organizations, federal,
state, and local law enforcement agencies need intelligence to
understand and effectively combat the illegal drug trade.
Intelligence can be used, for example, to learn about the structure,
membership, finances, communications, and activities of
drug-trafficking organizations as well as specific operational
details of particular illegal drug-smuggling or money-laundering
activities.
RESULTS IN BRIEF
------------------------------------------------------------ Letter :2
More than 20 federal or federally funded organizations, spread across
5 cabinet-level departments and 2 cabinet-level organizations, have a
principal role in collecting and/or producing counterdrug
intelligence. Together, these organizations collect domestic and
foreign counterdrug intelligence information using human, electronic,
photographic, and/or other technical means. This information is used
by U.S. policymakers to formulate counterdrug policy and by law
enforcement agencies to learn about the groups that traffic in drugs
and to identify the points at which drug-trafficking operations are
the most vulnerable.
The amount of federal funds spent on counterdrug intelligence
programs and activities and the number of federal personnel assigned
to counterdrug intelligence functions are difficult to determine.
There is no government-wide budget or single source from which to
obtain this data, including ONDCP's National Drug Control Strategy
Budget Summary. In addition, it is difficult to determine the
spending and personnel for counterdrug intelligence because (1) most
organizations do not have separate budget line items and are not
authorized personnel positions specifically for counterdrug
intelligence and (2) some agency functions and personnel serve
multiple purposes or support multiple missions.
Unclassified information reported to us by counterdrug intelligence
organizations shows that over $295 million was spent\1 for
counterdrug intelligence activities during fiscal year 1997 and over
1,400 federal personnel were engaged in these activities. The
Justice, Treasury, and Defense Departments account for over 90
percent of the money spent and personnel involved.
--------------------
\1 The term spent, as used throughout this report, means the outlay
of government funds.
OGANIZATIONS THAT COLLECT
AND/OR PRODUCE COUNTERDRUG
INTELLIGENCE
------------------------------------------------------------ Letter :3
Numerous federal, state, and local organizations collect and/or
produce counterdrug intelligence. Their specific activities depend
on the nature of the drug-monitoring, law enforcement, intelligence,
or other counterdrug mission assigned to them. This report focuses
on the federal or federally funded organizations we identified as
having a principal role in collecting and/or producing counterdrug
intelligence. We do, however, briefly discuss the roles of other
federal organizations that contribute counterdrug intelligence
information as by-products of their missions. Organizations such as
the National Security Council and the Department of Justice's
Organized Crime and Drug Enforcement Task Forces Program, which are
primarily consumers of counterdrug intelligence information, were
excluded from this report.
AGENCIES WITH A PRINCIPAL
COUNTERDRUG INTELLIGENCE
ROLE
---------------------------------------------------------- Letter :3.1
Drug-related intelligence information is gathered by two principal
communities: the national foreign intelligence (including the
Department of Defense (DOD))\2 and federal law enforcement
communities. Within these 2 communities, we identified at least 22
federal or federally funded organizations spread across 5
cabinet-level departments (Justice, Treasury, Transportation,
Defense, and State) and 2 cabinet-level organizations (ONDCP\3 and
the Director of Central Intelligence) whose roles include collecting
and/or producing counterdrug intelligence information. The
organizations\4 having a principal role in collecting and/or
producing counterdrug intelligence are as follows:
-- Department of Justice
Drug Enforcement Administration (DEA)
El Paso Intelligence Center (EPIC)
Federal Bureau of Investigation (FBI)
National Drug Intelligence Center (NDIC)
Justice-funded Regional Information Sharing System (RISS) Program
-- Department of the Treasury
U.S. Customs Service
Customs' Domestic Air Interdiction Coordination Center (DAICC)
Financial Crimes Enforcement Network (FinCEN)
-- Department of Transportation
U.S. Coast Guard
-- Department of Defense
Joint Interagency Task Force-East (JIATF-East)
Joint Interagency Task Force-West (JIATF-West)
Joint Interagency Task Force-South (JIATF-South)
Joint Task Force Six (JTF-6)
Defense Intelligence Agency (DIA)
National Security Agency (NSA)
National Imagery and Mapping Agency (NIMA)
Office of Naval Intelligence (ONI)
Tactical Analysis Teams (TAT)
-- Department of State
Bureau of Intelligence and Research (INR)
-- Executive Office of the President/ONDCP
ONDCP-funded High Intensity Drug-Trafficking Areas (HIDTA) Program
-- Director of Central Intelligence
Central Intelligence Agency (CIA)
Crime and Narcotics Center (CNC)
Figure 1 provides a graphic representation of federal organizations
with a principal role in counterdrug intelligence.
Figure 1: Counterdrug
Intelligence Organizations
(See figure in printed
edition.)
Note: EPIC is a multiagency intelligence center managed by DEA.
Also, RISS and HIDTA are programs funded by the Department of Justice
and ONDCP, respectively.
\a ONDCP is charged with overseeing the development and
implementation of an effective interagency drug intelligence effort
that supports the successful implementation of the national drug
control strategy.
\b NSA, as a member of the Intelligence Community, is also
subordinate to the DCI.
Source: GAO compilation based on information provided by
organizations with a principal role in collecting and/or producing
counterdrug intelligence.
--------------------
\2 The national foreign intelligence organizations that support U.S.
counterdrug intelligence efforts include the Central Intelligence
Agency, National Security Agency, Defense Intelligence Agency,
National Imagery and Mapping Agency, and Office of Naval
Intelligence.
\3 ONDCP does not collect or produce counterdrug intelligence;
however, it provides federal funding for the High Intensity
Drug-Trafficking Areas Program, which involves multiagency federal,
state, and local organizations. Law enforcement initiatives funded
under this program may collect and produce counterdrug intelligence.
\4 The types of organizations include national intelligence centers
(e.g., El Paso Intelligence Center, National Drug Intelligence
Center); detection and monitoring operations centers with supporting
intelligence units (e.g., Joint Interagency Task Force-East);
federally funded programs; and federal agencies, offices, and units.
ORGANIZATIONS THAT ALSO
CONTRIBUTE COUNTERDRUG
INFORMATION
---------------------------------------------------------- Letter :3.2
A number of federal organizations provide counterdrug intelligence as
by-products of their principal missions. For example, the Border
Patrol's principal mission is to prevent the illegal entry of aliens
between U.S. ports of entry. In the course of this effort, the
Border Patrol arrests illegal border crossers who may also be
transporting drugs. While the quantity of drugs the Border Patrol
seizes each year is significant, those seizures result from the
Border Patrol's principal mission to interdict illegal aliens--not
drugs. Information about Border Patrol arrests and drug seizures is
used to produce tactical and operational intelligence for the Border
Patrol's own use and dissemination to other federal organizations,
such as DEA, EPIC, and the Customs Service, for investigative and
intelligence purposes.
Other federal organizations that contribute counterdrug intelligence
as by-products of their principal missions include the Bureau of
Alcohol, Tobacco, and Firearms; Federal Aviation Administration; and
the Bureau of Land Management.
ROLE OF COUNTERDRUG
INTELLIGENCE ORGANIZATIONS
------------------------------------------------------------ Letter :4
The role of counterdrug intelligence is to support both the
individual organizations' drug-monitoring, law enforcement,
intelligence, or other counterdrug mission in support of the national
drug control strategy. According to the strategy, the goal of the
U.S. supply reduction effort is to reduce the supply of available
drugs in the belief that the less available drugs are, the fewer
people will use them. To help reduce the supply of drugs, efforts
must be focused on acquiring intelligence concerning every link in
the drug chain--from drug cultivation to production and trafficking,
both domestically and abroad.
COLLECTING COUNTERDRUG
INTELLIGENCE INFORMATION
---------------------------------------------------------- Letter :4.1
Many of the organizations we identified as having a principal role in
counterdrug intelligence are intelligence collectors who operate
either domestically or abroad or, in the case of some organizations,
both. Counterdrug intelligence organizations employ human,
electronic, photographic, and/or other technical means to collect
intelligence information.
DOMESTIC AND/OR FOREIGN
COLLECTION
-------------------------------------------------------- Letter :4.1.1
Under existing federal statutes and executive orders, U.S.
counterdrug intelligence organizations collectively are authorized to
gather information regarding suspected illegal drug activities of (1)
U.S. and foreign persons and organizations within the United States
(domestic intelligence) and (2) foreign powers, organizations, or
persons outside the United States (foreign intelligence). Generally,
law enforcement organizations such as the DEA and FBI collect both
domestic and foreign counterdrug intelligence information, whereas
national foreign intelligence organizations such as the CIA, NSA, and
DIA collect only foreign intelligence information. Executive Order
12333, United States Intelligence Activities, places limits on
agencies such as the CIA, NSA, and DIA from collecting information
concerning the domestic activities of U.S. persons.\5 Table 1
depicts the domestic and foreign collection counterdrug intelligence
organizations are authorized to conduct. The table does not include
those organizations that do not collect counterdrug intelligence.
Table 1
Counterdrug Intelligence Organizations'
Authorized Collection
Domestic Foreign
Organization -------------- --------------
Justice
DEA x x
FBI x x
Treasury
Customs Service x
Transportation
Coast Guard x x
ONDCP
HIDTA x
National foreign intelligence x
organizations\a
----------------------------------------------------------------------
Note: X indicates the counterdrug intelligence organization's
authorized collection.
\a Includes the independent and/or combined collection activities of
the CIA, NSA, JIATF-South, DIA, NIMA, and ONI.
Source: GAO compilation based on information provided by
organizations with a principal role in collecting counterdrug
intelligence information.
--------------------
\5 DOD Directive 5240.1 provides guidance to DOD intelligence
components regarding the collection of information concerning U.S.
persons.
BASIC INTELLIGENCE
COLLECTION MEANS
-------------------------------------------------------- Letter :4.1.2
There are three basic means counterdrug intelligence organizations
use to collect intelligence information:
-- Human includes confidential informants, cooperating witnesses,
and other human sources.
-- Electronic and/or signals includes intercepted conversations
through telephone, radio, or other communication devices and
noncommunication electronic emissions produced by devices such
as radars.
-- Photographic or imagery includes imagery of objects or persons
using devices as simple as a hand-held camera to more
sophisticated imaging systems.
The counterdrug intelligence organizations identified in table 1 use
each of these basic intelligence collection means.
PRODUCING COUNTERDRUG
INTELLIGENCE
---------------------------------------------------------- Letter :4.2
Most of the organizations we identified as having a principal role in
counterdrug intelligence are producers rather than collectors of
information.\6
For example, NDIC, EPIC, and the JIATFs rely on information collected
by other organizations to produce their intelligence products and are
not collectors themselves.\7
Organizations produce strategic, operational, and/or tactical
intelligence. There is no universally agreed upon definition among
counterdrug intelligence organizations as to what constitutes
strategic, operational/investigative, and tactical intelligence. For
the purposes of this report, the following definitions and examples
characterize the various types:
-- Strategic intelligence is information concerning broad
drug-trafficking patterns and trends that can be used by U.S.
policymakers, including department and agency heads, for
strategic planning and programming purposes. Examples include
information on coca leaf crop estimates; foreign country or
regional drug threat assessments; broad patterns or trends in
cocaine, heroin, methamphetamine, or other drug production and
trafficking; and information on the financial, transportation,
structure, and other workings of major drug-trafficking
organizations and their leadership hierarchy.
-- Operational/investigative intelligence is information that can
be used to provide analytic support to an ongoing criminal
investigation or prosecution or can be useful in resource
planning, such as where to station agents to obtain evidence
over a period of time. Examples include information about
specific persons, organizations, facilities, or routes being
investigated and/or prosecuted for illegal drug-trafficking.
-- Tactical intelligence is information that is of immediate use in
supporting an ongoing drug investigation; positioning federal
assets to monitor the activities of suspected drug traffickers;
or positioning federal, state, or local law enforcement assets
to interdict, seize, and/or apprehend a vehicle or other
conveyance and/or person suspected of trafficking in drugs.
This can include information such as the current or imminent
location or mode of transportation of specific drug shipments.
Table 2 identifies the types of intelligence produced by counterdrug
intelligence organizations.
Table 2
Types of Intelligence Produced by
Counterdrug Organizations
Operationa
Tactical l Strategic
intelligen intelligen intelligen
ce ce ce
Organization ---------- ---------- ----------
Justice
DEA x x x
EPIC x x x
FBI x x x
NDIC x x
RISS x x
Treasury
Customs Service x x x
DAICC x x x
FinCEN x x x
Transportation
Coast Guard x x x
Defense
JTF-6 x x
JIATF-East x x
JIATF-West x x
JIATF-South x x
TAT x x
State
INR x
ONDCP
HIDTA x x x
National foreign intelligence x x x
organizations\a
----------------------------------------------------------------------
Note: X indicates the types of intelligence that each counterdrug
organization produces.
\a Includes the independent and/or combined production activities of
the CIA, CNC, NSA, DIA, NIMA, and ONI.
Source: GAO compilation based on information provided by
organizations with a principal role in producing counterdrug
intelligence.
--------------------
\6 In carrying out their role, counterdrug intelligence organizations
produce intelligence that serves a broad range of customers, from
Congress and senior executive branch officials that formulate
policies for countering illegal drug-trafficking to federal, state,
and local law enforcement officers that investigate, interdict,
arrest, and prosecute drug traffickers.
\7 EPIC does have a limited collection program but does not have
management responsibility for the information it collects. The
information collected is provided to another agency that manages the
collection.
COUNTERDRUG INTELLIGENCE
PRODUCTS
---------------------------------------------------------- Letter :4.3
The ONDCP Director of Intelligence said that how consumers use the
intelligence ultimately determines whether the intelligence is
strategic, tactical, or operational. The products that the
organizations included in our review produce include the following.
THREAT ASSESSMENTS
-------------------------------------------------------- Letter :4.3.1
Reports that consolidate all known information about a specific topic
in order to describe the current drug situation and, in some cases,
to indicate what may occur in the future. Examples include annual
assessments of the drug threat in HIDTA geographic areas and the
impact of the threat in other areas, EPIC's threat assessments on the
Southwest border, EPIC domestic and worldwide threat briefs, and
DEA's assessment of the South American heroin threat.
ORGANIZATIONAL OR
INDIVIDUAL PROFILES
-------------------------------------------------------- Letter :4.3.2
Reports that provide information on specific drug-trafficking
organizations or individual traffickers. Organizational profiles,
produced by DEA and FBI, contain information about a drug-trafficking
organization's members, associates, business interests, operations,
finances, and communications. Other examples of organizational
profiles include NDIC profiles of the Amezcua-Contreras Organization
and Vietnamese drug-trafficking organizations. An individual's
profile would include, among other things, information on a known or
suspected drug trafficker's citizenship, aliases, residence,
employment, arrest record, vehicles owned, and other assets.
COUNTRY-SPECIFIC STUDIES
-------------------------------------------------------- Letter :4.3.3
Reports that provide information on a specific country's drug-related
activities such as coca cultivation and processing of drugs, drug
abuse and treatment, drug law enforcement agencies, and treaties and
conventions with the United States. Examples of country-specific
studies include DEA's studies of Mexico, El Salvador, and Bolivia and
FinCEN's advisory regarding the Colombian black market peso exchange.
TREND PUBLICATIONS
-------------------------------------------------------- Letter :4.3.4
Reports that provide information on a specific condition over a
period of time and analyze any patterns or changes in patterns that
occur. While this type of report may be included as part of other
products, such as threat assessments, some organizations issue
separate reports on trends. Examples of trend publications are the
interagency assessment of cocaine movement, FinCEN's analysis of
trends in currency flows to and from Federal Reserve banks to
identify money-laundering activities, DAICC's reports on
air-smuggling patterns along the Southwest border, Customs Service
reports of drug seizure activities, and EPIC's special report on
highway interdiction.
INVESTIGATIVE
INTELLIGENCE REPORTS
-------------------------------------------------------- Letter :4.3.5
Reports that are produced and used by organizations such as DEA,
Customs, and FBI to further their investigations. Examples of
investigative intelligence reports are link analyses, telephone toll
analyses, and post-drug seizure analyses. A link analysis uses
intelligence or information such as telephone numbers or financial
transactions, acquired during an investigation or multiple
investigations, to identify people, businesses, or organizations
involved in drug activities and their associations. A telephone toll
analysis uses telephone numbers acquired from investigative targets
to identify additional drug-trafficking suspects. A post-drug
seizure analysis uses items such as drugs, equipment, vehicles,
shipment containers, documents, or computer records seized from
suspects during search warrants and seizures to identify new
drug-smuggling trends or methods used by drug traffickers.
SPOT REPORTS
-------------------------------------------------------- Letter :4.3.6
Actionable intelligence reports that facilitate U.S. law enforcement
efforts to seize drugs and apprehend suspected drug traffickers.
These reports include EPIC, RISS, and HIDTA-funded watch centers'
responses to queries received from federal, state, and local law
enforcement for information such as database extracts on a specific
subject or vehicle; JIATF and Customs lookout lists, special alerts
for persons, vessels, and aircraft in their areas of responsibility;
and DAICC reports on suspect aircraft making drug airdrops to vessels
or vehicles within the U.S. border.
SPECIAL REPORTS
-------------------------------------------------------- Letter :4.3.7
Include NDIC's National Street Gang Survey; officer safety bulletins;
EPIC's reference document on concealment methods in land vehicles;
and FBI and RISS charts, exhibits, and analyses prepared for
presentation at trials or grand juries.
For more detailed information on individual organization counterdrug
intelligence products, see appendix I.
FEDERAL SPENDING FOR
COUNTERDRUG INTELLIGENCE
PROGRAMS
------------------------------------------------------------ Letter :5
The amount of federal funds spent by counterdrug intelligence
organizations is difficult to determine because (1) there is no
government-wide, consolidated counterdrug intelligence budget or
single government source from which to determine how much
organizations budget and spend on counterdrug intelligence; (2) in
all but a few cases, organizations do not maintain separate budgets
to account for counterdrug intelligence funding; and (3) some
organizations functions serve more than one purpose, and it is
therefore difficult to directly allocate costs to a particular
activity such as counterdrug intelligence
(e.g., law enforcement officers collect intelligence as part of their
investigative activities).
ONDCP's 1998 National Drug Control Strategy Budget Summary showed
that $154.2 million was spent for counterdrug intelligence in fiscal
year 1997. This total did not, however, include all spending for
counterdrug intelligence for fiscal year 1997. It included money
spent for counterdrug intelligence by some organizations but did not
include money spent by organizations such as the Defense Department,
Coast Guard, and Customs Service. According to ONDCP officials,
counterdrug intelligence spending attributable to these organizations
is included under the interdiction and/or investigation drug
functions in the ONDCP budget summary, but is not specifically
identified as intelligence.
Organizations with a principal role in collecting and/or producing
counterdrug intelligence provided us with unclassified information
showing that at least $295 million was spent for counterdrug
intelligence in fiscal year 1997. Figure 2 shows, by cabinet-level
organization, the amount and percentage of spending agencies reported
to us for counterdrug intelligence programs and activities for fiscal
year 1997.
Figure 2: Counterdrug
Intelligence Spending Reported
by Cabinet-Level Organizations
(fiscal year 1997)
(See figure in printed
edition.)
\a Includes Customs Service, DAICC, and FinCEN.
\b While NDIC is organizationally part of the Justice Department,
beginning in fiscal year 1997, its funding was provided by the
National Foreign Intelligence Program.
\c Includes ONDCP-funded HIDTA Program.
\d Includes Coast Guard.
\e Includes DEA, EPIC, FBI, and the Justice-funded RISS Program.
Source: GAO compilation based on information provided by
organizations with a principal role in collecting and/or producing
counterdrug intelligence.
The Justice, Defense, and Treasury Departments account for over 90
percent of the total estimated spending for counterdrug intelligence
activities in fiscal year 1997. For individual organization
funding/spending amounts for fiscal years 1995 through 1998, and,
where applicable, a discussion of the methodology some organizations
used to estimate counterdrug intelligence funding/spending, see
appendix I.
NUMBERS OF PERSONNEL ASSIGNED
TO COUNTERDRUG INTELLIGENCE
ACTIVITIES
------------------------------------------------------------ Letter :6
The number of federal personnel assigned to counterdrug intelligence
collection and/or production activities is difficult to determine
because
-- in many cases organizations are not authorized and/or do not
track personnel positions specifically for counterdrug
intelligence activities, yet have personnel who perform
counterdrug intelligence functions;
-- there is no single governmentwide source from which to obtain
information on the number of counterdrug intelligence personnel
(e.g., ONDCP's 1997 National Drug Control Strategy Budget
Summary reported estimates of total counterdrug personnel
resources--i.e., full-time equivalents--but did not further
delineate personnel by intelligence or other key ONDCP drug
function);
-- some personnel perform functions that serve more than one
purpose, and it was difficult for organization officials to
determine the amount of time these people spent specifically on
counterdrug intelligence duties as opposed to other duties
(e.g., law enforcement officers collect intelligence as part of
their investigative activities); and
-- some intelligence personnel perform functions in support of
multiple missions, and it was difficult to determine how much
time they spent on counterdrug intelligence activities (e.g.,
Customs intelligence research specialists support Customs'
trade, fraud, and export control missions in addition to its
counterdrug mission).
The organizations with a principal role in collecting and/or
producing counterdrug intelligence provided us with unclassified
information on the number of personnel assigned to counterdrug
intelligence programs and activities. As of October 1, 1997, over
1,400 personnel collected and/or produced counterdrug intelligence.
Figure 3 shows, by cabinet-level organization, the estimated number
and percentage of counterdrug intelligence personnel that
organizations reported to us as supporting counterdrug intelligence
programs and activities as of October 1, 1997.
Figure 3: Estimated
Counterdrug Intelligence
Personnel Reported by
Cabinet-Level Organizations (as
of Oct. 1, 1997)
(See figure in printed
edition.)
Note: ONDCP is not included in figure because federal counterdrug
intelligence personnel assigned to ONDCP HIDTA activities are counted
under their parent federal organizations.
\a Includes Customs Service, DAICC, and FinCEN.
\b Includes Coast Guard.
\c Includes DEA, EPIC, FBI, and NDIC.
Source: GAO compilation based on information provided by
organizations with a principal role in collecting and/or producing
counterdrug intelligence.
The Justice, Defense, and Treasury Departments account for over 90
percent of the total estimated unclassified number of federal
personnel who support counterdrug intelligence programs and
activities. For more detailed information regarding each
organization's counterdrug intelligence personnel and, where
applicable, a discussion of the methodology organizations used to
estimate the number of counterdrug intelligence personnel assigned to
their organization, see appendix I.
AGENCY COMMENTS
------------------------------------------------------------ Letter :7
We provided the Office of National Drug Control Policy; Departments
of Defense, Justice, State, Transportation and Treasury; and the
Director of Central Intelligence a copy of the draft report for their
review and comment. The Departments of State and Defense and the
Director of Central Intelligence responded with oral comments and the
Office of National Drug Control Policy and the Departments of
Justice, Transportation, and Treasury provided written comments.
These agencies agreed with how the draft report portrayed their
respective agencies' counterdrug intelligence role, mission, funding,
and personnel-related information. Each of the agencies provided
technical comments to clarify the scope of their activities in
support of U.S. counterdrug intelligence programs. Their technical
comments were incorporated where appropriate.
SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :8
We identified those federal organizations that collect and/or produce
counterdrug intelligence information by reviewing documents,
including our prior reports and other studies, and interviewing
officials at the Departments of Justice, Treasury, Transportation,
State, and Defense; the Office of National Drug Control Policy; and
other federal organizations. We focused our efforts on those
organizations that have counterdrug intelligence as a principal role.
For organizations that produce counterdrug intelligence as a
by-product of their principal mission, such as the Border Patrol and
Federal Aviation Administration, we reviewed documents and, in some
cases, interviewed agency officials.
For the organizations included in our review, we sought descriptive
data and other information from the organizations. Initially, we
provided each agency with a data collection instrument seeking
information on, among other things, their intelligence roles,
mission, funding, personnel, and products. Later, we interviewed
officials at headquarters and selected field offices of various U.S.
law enforcement, Department of Defense, and other agencies to discuss
their respective counterdrug intelligence programs, observe
counterdrug activities and/or demonstrations of counterdrug
intelligence applications and databases, and collect relevant
documentation about their programs. Appendix III lists the locations
we visited.
We compiled information concerning the organizations' overall and
specific counterdrug intelligence mission, statutory authority,
budgets, personnel figures, and operational data. In some cases, we
obtained classified information, which is not included in this
report. We did not independently verify organizations' statistical
or budgetary data; however, whenever possible, we compared their data
to that provided to ONDCP and contacted agencies to clarify budget or
personnel data where the information appeared to be inconsistent.
We also requested a briefing on the activities of the Director of
Central Intelligence's Crime and CNC and information on CNC's
mission, personnel, structure, and funding. CIA's Director of
Congressional Affairs informed us that the agency would be unable to
provide us with the requested information. In a subsequent meeting
with staff from your Subcommittee and the House Permanent Select
Committee on Intelligence, we were directed to withdraw our request
for personnel and funding information and limit our request to
information on CNC's roles, missions, and functions. CNC
subsequently provided us a written statement of its roles, missions,
and functions.
We performed our review from August 1997 through March 1998 in
accordance with generally accepted government auditing standards.
---------------------------------------------------------- Letter :8.1
We are sending copies of this report to interested congressional
committees; the U.S. Attorney General; the Secretaries of Treasury,
Transportation, Defense, and State; and the Directors of ONDCP and
Central Intelligence. We will make copies available to other
interested parties upon request.
Please contact me at (202) 512-3504 if you or your staff have any
questions concerning this report. Major contributors to this report
are listed in appendix IV.
Sincerely yours,
Richard Davis
Director, National Security
Analysis
ORGANIZATIONS WITH PRINCIPAL
COUNTERDRUG INTELLIGENCE ROLES
=========================================================== Appendix I
DRUG ENFORCEMENT ADMINISTRATION
--------------------------------------------------------- Appendix I:1
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:1.1
The Drug Enforcement Administration's (DEA) mission is to enforce the
U.S. controlled substances laws and regulations and to bring to the
U.S. or any other competent criminal and civil justice system the
organizations and their principal members involved in growing,
manufacturing, or distributing controlled substances in or destined
for illicit traffic in the United States. In addition, DEA
recommends and supports nonenforcement programs aimed at reducing the
availability of illicit controlled substances on domestic and
international markets. DEA's Intelligence Program supports its
counterdrug mission and specific objectives.
DEA conducts its counterdrug activities under the authority of
Reorganization Plan No. 2 of 1973 and Executive Order 11727 (1973).
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:1.2
Since its establishment in 1973, DEA, in coordination with other
federal, state, local, and foreign law enforcement organizations, has
been responsible for the collection, analysis, and dissemination of
drug-related intelligence. DEA's intelligence efforts are overseen
by its Intelligence Division. Specific units within the Intelligence
Division are responsible for providing intelligence support or
assessments internally on, among other things, types of illegal
drugs, for example, cocaine or heroin; types of illegal activity, for
example, diversion of legitimate drugs and precursor chemicals; level
of illegal activity, for example, street or wholesale distributors;
or major trafficking organizations or sensitive investigations.
Intelligence units are located in 21 domestic field divisions and in
major drug cultivation, production, and transit countries around the
world. DEA also manages the El Paso Intelligence Center (EPIC), a
multiagency tactical drug intelligence center. In some of its
overseas offices, DEA provides guidance to the U.S. embassies'
Tactical Analysis Teams (TAT)--Department of Defense (DOD) resources
used for information and intelligence gathering.
The focus of DEA's Intelligence Program is to provide analytical
support to investigations, assist in identifying and profiling
drug-trafficking organizations and methods, support efforts to target
and arrest the highest levels of traffickers within those
organizations, identify trafficker assets, and further criminal
prosecutions of drug traffickers.
DEA manages a national narcotics intelligence system to collect and
analyze tactical, operational, and strategic drug intelligence and
disseminate this intelligence to all federal, state, local, and
foreign antidrug agencies with a need to know. DEA collects tactical
intelligence for the immediate interdiction of drug shipments;
operational intelligence on organizations and individuals involved in
drug-smuggling; and strategic intelligence on trafficking patterns,
drug cultivation, emerging trends, and the price and purity of
illicit drugs and similar data used for decision-making. Based on
information obtained through investigations, as well as from other
sources, DEA intelligence elements produce strategic and trend
assessments to assist DEA field managers and executives in the
deployment of resources. National level policymakers use these
assessments in developing drug control policies and strategies. DEA
collects imagery and human intelligence and conducts court-authorized
electronic surveillance of individuals and organizations.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:1.3
DEA intelligence analysts develop a variety of products, which
include, in part, strategic trend and analysis publications,
strategic organizational profiles, country-specific studies, reports
on emerging trends, and enforcement support products such as
investigative reports, document analyses, telephone toll analyses,
link analyses, and investigative file reviews.
Among the 1997 unclassified intelligence products DEA published were
The South American Heroin Threat; Heroin: An Assessment; Changing
Patterns in Nigerian Heroin Trafficking; Operation BREAKTHROUGH:
Coca Cultivation & Cocaine Base Production in Peru; Europe--Ecstacy
Production, Trafficking and Abuse; Money Laundering in Costa Rica;
The Marijuana Trade in Colombia; Cocaine Hydrochloride Production in
Bolivia; Changing Dynamics of the U.S. Cocaine Trade; and various
country-specific bulletins, including ones on El Salvador, Mexico,
Bolivia, Costa Rica, and Panama.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:1.4
As of October 1, 1997, DEA's Intelligence Program was authorized 442
intelligence research specialist positions (including those in EPIC)
and approximately 300 additional special agents\1 and support
personnel, representing about 10 percent of DEA's workforce. Of the
442 intelligence research specialists authorized, 422 were on board.
--------------------
\1 Special agents assigned to field division intelligence groups
perform a number of duties, including intelligence group supervision
and support to intelligence-related operations requiring the
debriefing of informants, surveillance, or other enforcement
activities. Special agents do not perform functions performed by
intelligence research analysts.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:1.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $63.7
1996 57.2
1997 61.5
1998 81.2\a
----------------------------------------------------------------------
Note: EPIC is included in DEA's funding. Not included are funds DEA
received from the Organized Crime Drug Enforcement Task Force Program
for providing regional intelligence services. In fiscal year 1997,
such funds totaled about $2 million.
\a Figure reflects the amount requested.
EL PASO INTELLIGENCE CENTER
--------------------------------------------------------- Appendix I:2
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:2.1
The El Paso Intelligence Center's counterdrug mission is to support
the field in disrupting the flow of illicit drugs at the highest
trafficking level through the exchange of time-sensitive, tactical
intelligence dealing principally with drug movement. EPIC provides
operational assessments of drug-trafficking organizations and
strategic assessments on drug movement and concealment techniques.
EPIC also analyzes and disseminates information regarding
drug-related currency movement.
EPIC conducts its counterdrug activities under the authority of a
1974 agreement between DEA and the Immigration and Naturalization
Service.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:2.2
Managed by DEA, EPIC is a 24-hour-a-day, 7-day-a-week multiagency
clearinghouse for tactical intelligence and the collection, analysis,
and dissemination of information related to worldwide drug movement.
Although EPIC has no direct collection management authority,\2
essential elements of intelligence are identified and provided to
participating agencies, as appropriate, for collection. EPIC has a
primary role to provide intelligence and law enforcement information
in support of interdiction and investigative efforts against the
movement of illegal drugs toward U.S. borders; over maritime and air
approaches; along the nation's interstate and state highway systems;
and through its airports, bus terminals, railway stations, and
commercial courier systems. EPIC responds to requests for tactical
support from federal and state enforcement agencies on specific
cases, links ongoing investigations, and also proactively provides
enforcement-support information to preempt trafficking activities and
to support interdiction. EPIC has placed special emphasis on
supporting counterdrug efforts along the U.S./Mexico border by
performing research and analysis of information to develop an
understanding of drug movement through Mexico and across the
Southwest border, and to identify the major trafficking organizations
responsible for that drug movement. EPIC also emphasizes the
transportation organizations approaching the United States through
the Caribbean corridor.
As of October 1, 1997, the Watch Operations Section, Tactical
Operations Section, and the Research and Analysis Section formed the
principal EPIC units responsible for intelligence collection and
analysis. An Information Management Section is responsible for the
operation and management of EPIC's communications and information
systems containing multiagency data.
--------------------
\2 EPIC does have a limited collection program. However, EPIC does
not have collection management responsibility for the information it
receives from other agencies. The information received at EPIC is
provided by its member agencies and other law enforcement agencies
that have the responsibility to manage that collection.
WATCH OPERATIONS SECTION
------------------------------------------------------- Appendix I:2.3
The Watch Operations Section is staffed 24 hours a day, 7 days a
week. Separate air and maritime units are responsible for the
coordination of air- and maritime-related requests received by EPIC.
The General Watch has the primary responsibility for receiving
requests for criminal histories and border-crossing and other
information from federal, state, and local law enforcement agencies,
conducting checks of various databases available at EPIC, and
providing EPIC's response to the requesting agencies. The General
Watch is also responsible for sending "EPIC lookouts" (lookouts for
persons, vehicles, or aircraft) and other alerts when requested by
law enforcement agencies.
The State and Local Liaison Unit, within the Watch Operations
Section, is responsible for facilitating Highway Interdiction
(Operation Pipeline/Convoy) training for state and local law
enforcement officers throughout North America.
TACTICAL OPERATIONS SECTION
------------------------------------------------------- Appendix I:2.4
The Tactical Operations Section is responsible for the operation and
management of the Joint Information Coordination Centers (a joint
EPIC, DEA, and Department of State program to assist governments in
establishing an EPIC-type center in the host countries); the
operation and maintenance of specialized communication collection
programs; the Special Operations Unit; and the Operational
Intelligence Unit. The Special Operations Unit is a 365-day watch
operation that facilitates the timely flow of tactical intelligence
and information worldwide. According to EPIC, among other things,
this unit has the capability to access sensitive foreign-source
information related to ongoing operations; monitor and coordinate
undercover operations and controlled drug deliveries; and assist the
interagency interdiction centers in the coordination of information
and the handoff of suspect targets to law enforcement agencies. The
Operational Intelligence Unit researches, analyzes, and fuses
federal, state, local, and national level intelligence on the major
smuggling organizations operating along the Southwest border and uses
this information to produce intelligence profiles on these
organizations and other investigative intelligence for use by law
enforcement agencies and policymakers.
RESEARCH AND ANALYSIS
SECTION
------------------------------------------------------- Appendix I:2.5
The Research and Analysis Section concentrates on all-source fusion
of drug-smuggling information to provide smuggling assessments
relative to trafficking groups, geographic areas, modes/methods of
transportation/concealment, as well as trend, pattern, and
statistical analysis. The Section is divided into the Domestic,
Foreign, Southwest Border, and Trend Analysis Units, which capture
the information and conduct the fusion, analysis, and dissemination
of intelligence products relating to drug movement. For example, the
Southwest Border Unit collects, fuses, and analyzes data and
intelligence information collected by law enforcement along the
border to produce trend and other assessments of drug-trafficking
along the Southwest border. The Trend Analysis Unit develops and
disseminates intelligence products on drug movement events, and
changes in drug movement trends, and identifies the primary threat
areas for drugs entering the United States. The Domestic Unit
supports programs involved in drug and drug-related currency
interdiction within the United States. The Foreign Unit concentrates
primarily on drug movement to South Florida and the East Coast
through the Caribbean corridor and support to interdiction programs.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:2.6
EPIC produces daily, weekly, monthly, quarterly, and annual reports
such as the Southwest border daily, quarterly, and annual reports,
the Weekly Activity Brief, the Highway Drug Interdiction Weekly
Activity Report, the monthly maritime and general aviation activity
reports, and the EPIC worldwide and domestic quarterly threat briefs.
EPIC also produces and disseminates special publications such as
reference documents on concealment methods in land vehicles, on
motorcycle gangs, and fishing vessel and aircraft identification
guides.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:2.7
As of October 1, 1997, EPIC had over 314 positions. These positions
included contract personnel, staff from its federal member
agencies,\3 and two state agencies. Of the 314 positions, 69 were
intelligence research specialists, of which 41 were DEA employees.
Of the 69 intelligence research positions available, 58 were on
board, of which 32 were DEA specialists.
--------------------
\3 EPIC's federal member agencies include DEA; Immigration and
Naturalization Service; Customs Service; Coast Guard; Bureau of
Alcohol, Tobacco and Firearms; Federal Aviation Administration;
Marshals Service; FBI; Internal Revenue Service; Secret Service;
Departments of State; Interior and Defense; CIA; and Defense
Intelligence Agency.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:2.8
Funding amounts for EPIC are included in funding totals in DEA's
profile.
FEDERAL BUREAU OF INVESTIGATION
--------------------------------------------------------- Appendix I:3
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:3.1
The Federal Bureau of Investigation (FBI) is charged with
investigating all violations of federal laws, except those that have
been assigned by legislation to other agencies. The FBI also has
concurrent jurisdiction with the Drug Enforcement Administration for
enforcement of federal criminal drug laws. The FBI's Criminal
Investigative Division is responsible for overseeing FBI counterdrug
efforts. Its Criminal Intelligence Program's counterdrug mission is
to identify existing and emerging criminal organizations involved in
narcotics trafficking.
The FBI's field office criminal intelligence squads' counterdrug
mission is to provide timely, useful, and accurate strategic,
operational, and tactical organizational intelligence in an effort to
facilitate the disruption and dismantling of major criminal
organizations impacting field office and regional territories.
The FBI conducts its counterdrug activities under 21 U.S.C. 871,
876, 881, and 1504; 18 U.S.C. 1961 and 3052; and 28 U.S.C. 533-535.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:3.2
The FBI primarily collects intelligence information from human
sources to help disrupt and dismantle drug organizations and
prosecute their leaders. Its human intelligence sources include
informants, cooperating witnesses, and information obtained through
undercover operations. Some of these sources may reside in other
countries. The Bureau also conducts court-authorized electronic
surveillance to penetrate sophisticated drug-trafficking
organizations and frequently obtains photographic intelligence to
help it plan enforcement actions.
As of October 1, 1997, the FBI had criminal intelligence squads in 13
of its 56 field offices\4 and supported joint counterdrug
intelligence efforts, such as the Southwest Border Project (a DEA,
FBI, and Customs Service effort to identify, in part, the command and
control structures of major Mexican drug-trafficking organizations)
and the Dominant Chronicle Project (an FBI/Defense Intelligence
Agency led foreign document/information exploitation initiative that
supports the U.S. counterdrug efforts via multiagency sharing of
comprehensive analytical reports derived from documents seized by
foreign law enforcement agencies).
--------------------
\4 The squads are located in Chicago, El Paso, Houston, Los Angeles,
Miami, New York, Philadelphia, Phoenix, San Antonio, San Diego, San
Francisco, San Juan, and Washington, D.C. Some of these squads, for
example, Houston, Los Angeles, and San Juan, provide counterdrug
intelligence services for local High Intensity Drug-Trafficking Area
(HIDTA) projects.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:3.3
The types of intelligence products produced by FBI intelligence
squads include threat assessments, organization intelligence profiles
(includes information on, among other things, an organization's
members, associates, businesses, operations, finances, and
communications); telephone toll analyses; and post-seizure analyses
of documents or other evidence seized during an investigation.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:3.4
As of October 1, 1997, the Criminal Investigative Division's
Intelligence Section had a total of 95 authorized positions, of which
88 personnel were on board. Forty eight of the 95 authorized
positions were intelligence research specialists, of which 36\5 were
on board. The field divisions had on-board 353 intelligence research
specialists,\6 including 159 who were in the criminal intelligence
squads.\7 In addition, the Southwest Border Project and Interagency
Dominant Chronicle had a total of 12 intelligence research
specialists.
--------------------
\5 In addition to counterdrug intelligence responsibilities,
intelligence research specialists may also be used to analyze and
develop intelligence for other FBI national priority investigations,
for example, organized, white-collar, and violent crimes.
\6 FBI headquarters does not allocate intelligence research
specialist positions to its field divisions. Field divisions are
given a certain number of investigative support positions in their
funded staffing levels, and each division decides how many of these,
if any, will be intelligence research specialist positions. In
addition, these analysts are often responsible for intelligence
activities related to other FBI priority investigations.
\7 The squads include other personnel positions, including FBI
special agents and support personnel, other federal enforcement
personnel, state or local law enforcement officers and/or analysts,
computer and technical support personnel, and military analyst
detailees. Special agents assigned to criminal intelligence squads
may also perform drug intelligence functions. The composition of the
squads varies by office.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:3.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 \a
1996 $21.6
1997 29.7
1998 30.7\b
----------------------------------------------------------------------
Note: Because the FBI does not have a budget line item for
counterdrug intelligence, funding amounts are estimates. In
addition, amounts do not include funds FBI criminal intelligence
squads received from the Organized Crime Drug Enforcement Task Force
Program for providing it intelligence services. In fiscal year 1997,
such funds totaled $11.7 million.
\a No estimate was provided for 1995.
\b Figure reflects the amount requested.
NATIONAL DRUG INTELLIGENCE
CENTER
--------------------------------------------------------- Appendix I:4
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:4.1
NDIC's mission is to coordinate and consolidate strategic
organizational drug intelligence from national security and law
enforcement agencies, in order to produce requested assessments and
analyses regarding the structure, membership, finances,
communication, transportation, logistics, and other activities of
drug-trafficking organizations. The scope of its mission is
worldwide drug-trafficking, with emphasis on the domestic arena.
Furthermore, NDIC is to provide strategic counterdrug threat
assessments for the nation's policymakers and executives, including
the Attorney General, the Director, Office of National Drug Control
Policy, and the Director of Central Intelligence.
NDIC conducts its counterdrug activities under the statutory
authority of the Department of Defense Appropriations Act for fiscal
year 1993, Public Law 102-396, section 9078, 106 Stat. 1876, 1919
(1992). Also, Attorney General Order No. 2059-96, dated October 29,
1996, which formalized NDIC's organization within the Department of
Justice and conveyed its charter.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:4.2
NDIC provides strategic counterdrug intelligence support to the
federal law enforcement and intelligence community agencies tasked
with counterdrug missions. NDIC's primary role is to provide these
agencies with assessments and analyses of drug-trafficking
organizations, emerging trends and patterns, and the national threat
posed by the drug trade. In addition, NDIC disseminates
nonoperational information on the drug trade to nonfederal law
enforcement agencies.
NDIC's, Intelligence Division is comprised, in part, of three
Strategic Organizational Intelligence Branches--the primary
analytical units--which are organized by geographic and subject
matter areas. The Strategic Organizational Intelligence Branches
analyze multisource drug intelligence to provide a strategic overview
of the trafficking organizations that impact on the United States, a
specific region or a metropolitan area under study.
On a smaller scale, the Intelligence Division also contains a
Document Exploitation Branch comprised of two teams which are
deployed when requested by federal law enforcement agencies to review
documentary and computerized evidence obtained from significant
drug-trafficking organizations. When deployed, team members collect
and analyze seized documents and transfer this information
electronically to NDIC for analysis to develop new investigative
leads. In addition, information discovered through document
exploitation is provided to the requesting field agents to support
their investigations and, if permitted, is placed in NDIC's main data
system for subsequent strategic analyses.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:4.3
NDIC's Intelligence Division produces all-source strategic
assessments including:
(1) baseline assessments--broad-ranging studies that focus on a
specific drug issue, trend, or subject. Examples of unclassified
baseline assessments include Effects of D-Methamphetamine, The
Dominican Threat: A Strategic Assessment of Dominican
Drug-Trafficking, Mexican Methamphetamine Organizational Trends and
Patterns, and Domestic Cannabis: Indoor Cultivation Operations.
(2) strategic organizational drug intelligence--all-source
assessments of specific drug trafficking organizations, unclassified
examples of this type of product include Mexican Methamphetamine
Organizational Profile of the Amezcua-Contreras Organization and
Vietnamese Drug-Trafficking Organizations.
(3) special projects--strategic assessments that do not fit the
criteria above, for example National Street Gang Survey Report,
Colombian Money Laundering Volume Three, and Clandestine Laboratory
Operators.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:4.4
As of October 1, 1997, NDIC was authorized 257 positions, of which
221 personnel were on-board. Of those on-board, 77 were detailed, on
a reimbursable basis, from 11 participating agencies. Of NDIC's
total personnel, the Director of NDIC had designated 117 positions
for intelligence analysts, of which 97 analysts were on-board.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:4.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $39.0
1996 34.7
1997 29.0
1998 29.0\a
----------------------------------------------------------------------
Note: For fiscal year 1996 and before NDIC was funded by DOD funds.
Beginning in fiscal year 1997, the program was funded with money from
the National Foreign Intelligence Program.
\a Figure represents the amount appropriated.
REGIONAL INFORMATION SHARING
SYSTEMS PROGRAM
--------------------------------------------------------- Appendix I:5
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:5.1
The mission of the Justice-funded Regional Information Sharing
Systems (RISS) Program is to enhance the ability of state and local
criminal justice agencies to identify, target, and remove criminal
conspiracies and activities spanning jurisdictional boundaries.
The Justice Department's Bureau of Justice Assistance conducts the
RISS Program under the statutory authority of 42 U.S.C. 3796 h.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:5.2
The RISS Program is a federally funded effort representing the only
nationwide, multijurisdictional criminal intelligence sharing system
operated by and for state and local law enforcement agencies.
Through the Bureau of Justice Assistance, the Justice Department
provides grants to six regionally based RISS projects: the
Mid-States Organized Crime Information Center, the Middle
Atlantic-Great Lakes Organized Crime Law Enforcement Network, the New
England State Police Information Network, the Regional Organized
Crime Information Center, Rocky Mountain Information Network, and the
Western States Information Network.\8 Each RISS project comprises
about 350 to 1,100 federal, state, and local criminal justice and
regulatory agencies within the project's mutually exclusive service
area. About 75 percent of the total RISS members nationwide are from
local law enforcement agencies. Federal agencies that participate
include FBI, DEA, and Customs Service field offices and NDIC.
Collectively, the RISS program operates in 50 states, the District of
Columbia, and Canada. Although each project sets its own priorities,
five of the six RISS projects focus heavily on narcotics-related
crime and one, the Western States Information Network, focuses
exclusively on narcotics.
Each project is required to provide information sharing, analysis,
and communications services to support investigative and
prosecutorial efforts of member agencies addressing
multijurisdictional offenses and conspiracies. Each project has an
information sharing center and analytical unit that form the
principal sections responsible for counterdrug intelligence
production and analyses. Each center maintains an automated pointer
index system to assist member agencies in sharing information
regarding known or suspected criminals or criminal organizations.
All six centers are electronically connected through the RISSNET wide
area network to allow for nationwide information sharing. Each
center responds to requests for information from its member agencies,
such as running queries of various law enforcement databases to
determine if other law enforcement agencies are investigating a
particular suspect or organization. In addition, each project has an
analytical unit that provides services to member agencies to support
particular cases, such as telephone toll analyses or financial
analyses, as well as broader analyses of criminal activities/groups
and investigative trends.
--------------------
\8 The Bureau provides grants to criminal justice agencies for each
of the six projects. Three of the RISS projects operate as subunits
of the sponsoring criminal justice agency, and the other three
operate as separate nonprofit entities to which the sponsoring
criminal justice agency provides the RISS funding.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:5.3
The type, number, and subject matter of counterdrug intelligence
products provided by RISS projects to member agencies vary by
location based on the size and resources of the project and the
priorities set by its policy board. Examples of RISS products are
responses to requests for information, such as database extracts on a
single subject (i.e., individual or organization) from law
enforcement and other databases; telephone toll, link, and event flow
analyses to support particular investigations; organizational or
individual profiles that provide information and analyses of
organizations or individual traffickers operating in the project's
service area; investigative trend reports; analyses for charts and
exhibits for trials or grand juries; and monthly/quarterly bulletins
regarding enforcement issues, including counterdrug intelligence
issues.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:5.4
Federal counterdrug intelligence personnel that participate in the
program through their federal agency field office's membership in the
RISS projects are included in their respective parent agency's
personnel estimates.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:5.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $13.1
1996 13.1
1997 13.1
1998 18.0\a
----------------------------------------------------------------------
Note: Funding amounts are based on the RISS Program's estimate that
90 percent of its funding supports drug-related intelligence-sharing
program assistance. The total RISS program funding, which includes
amounts for discretionary grants to the six RISS projects and one
discretionary grant to the Institute for Intergovernmental Research
to provide technical support and assistance to the projects, was
$14.5 million (actual) for fiscal years 1995 to 1997 and $20 million
(appropriated) for 1998.
\a Figure reflects the amount appropriated. In addition to the $20
million appropriated to the Bureau of Justice Assistance for fiscal
year 1998, Congress earmarked $5 million for the Community Oriented
Policing Technology Program for a one-time enhancement to the RISS
program to upgrade its communications infrastructure. Within this
amount, $500,000 was provided to develop an inventory of the major 25
to 40 nationwide automated law enforcement information systems funded
by the Department of Justice. The study is to address the systems'
interoperability and interconnectivity and result in a strategy that
brings these systems together to communicate effectively and
efficiently while guarding against duplication and overlap.
U.S. CUSTOMS SERVICE
--------------------------------------------------------- Appendix I:6
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:6.1
Among its many missions to prevent contraband from entering or
exiting the United States, the Customs Service is the lead agency for
interdicting drugs being smuggled into the United States and its
territories by land, sea, or air. The Customs Service's primary
counterdrug intelligence mission is to support Customs' drug
enforcement elements (i.e., inspectors and investigators) in their
interdiction and investigation efforts.
The Customs Service conducts its counterdrug activities under the
Tariff Act of 1930, as amended, and certain provisions of titles 18
and 19 of the U.S. Code, including 18 U.S.C. 545 and 19 U.S.C.
1401, 1497, 1584, 1589a, 1590, and 1595a. In addition, by Memorandum
of Understanding dated August 8, 1994, between DEA and the Customs
Service, cross-designated special agents of Customs can conduct
certain investigations under
21 U.S.C. 801-904 and 21 U.S.C. 951-971.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:6.2
Customs' Intelligence and Communications Division at headquarters has
primary responsibility for intelligence analysis, operation, and
Intelligence Community liaison for Customs, including functional
oversight over all Customs intelligence assets at headquarters and in
the field. The division's counterdrug role is to produce tactical,
operational, and strategic intelligence regarding drug-smuggling
individuals, organizations, transportation networks, and patterns and
trends. The division provides its products to Customs' enforcement
elements and executive management as well as to other agencies with
drug enforcement or intelligence responsibilities. The division's
major operational subdivisions are the Intelligence Analysis Branch,
Operations Branch, and Program and Policy Evaluation Branch.
INTELLIGENCE ANALYSIS
BRANCH
----------------------------------------------------- Appendix I:6.2.1
The Intelligence Analysis Branch is responsible for monitoring and
analyzing the Intelligence Community's reports and integrating them
with Customs and other law enforcement-generated intelligence to
produce strategic, operational, and tactical intelligence, including
specific narcotics enforcement leads, and disseminating it to Customs
enforcement elements and executive management. In addition, this
branch provides Customs' input to multiagency analytical products,
participates as Customs' representative in interagency intelligence
forums, and coordinates Customs' national level collection programs
by maintaining direct working relationships with its counterparts in
other intelligence and law enforcement agencies.
OPERATIONS BRANCH
----------------------------------------------------- Appendix I:6.2.2
The Operations Branch is divided into the Intelligence Support Group
and Tactical Intelligence Group. The Intelligence Support Group is
responsible for the operations of the watch office and special
compartmentalized intelligence facility for receipt, control,
handling, and sanitization of classified intelligence from other
organizations. The Tactical Intelligence Group oversees the
operations of certain operational collection elements. In addition,
the Branch provides intelligence support to Customs' air interdiction
efforts (i.e., the Domestic Air Interdiction Center and the Customs
National Aviation Center).
PROGRAM AND POLICY
EVALUATION BRANCH
----------------------------------------------------- Appendix I:6.2.3
The Program and Policy Evaluation Branch is responsible for Customs'
liaison with the Intelligence Community and coordination with the
Treasury Department. In addition, this branch is responsible for
developing and maintaining Customs' internal operational guidelines,
such as its intelligence policy initiatives and requirements.
Customs' intelligence assets in the field include five Area
Intelligence Units, special-agent-in-charge (SAC) intelligence units,
17 Intelligence Collection and Analysis Teams, and various
multi-agency efforts. Customs' Area Intelligence Units in New York,
Los Angeles, Houston, New Orleans, and Miami are to provide
intelligence support services to all of Customs' enforcement efforts
in their regions, including narcotics. These units produce tactical,
operational, and strategic products for their regions, including
direct case support to criminal investigators, as needed. In
addition, intelligence resources are assigned directly to the SACs of
each Customs field office. These resources primarily are to provide
case support to enforcement groups. Customs' Intelligence Collection
and Analysis Teams provide tactical intelligence to inspectors
regarding smuggling activities at their respective ports of entry.
These teams' intelligence is provided to headquarters for fusion with
national-level intelligence and further dissemination, as
appropriate. Customs relies on DEA and the Intelligence Community
for foreign counterdrug intelligence.
In addition, Customs provides intelligence assets for various
multiagency counterdrug intelligence and/or enforcement efforts,
including the Customs-led Combined Agency Border Intelligence
Network, which generates unsolicited investigative leads to
appropriate agencies regarding nontraditional alien drug-smuggling
suspects. In addition, Customs provides intelligence assets to the
South Florida Blue Lightning Operations Center, which supports the
Blue Lightning Strike Force in addressing drug-smuggling in the
southeast. The Center assists in identifying and developing
organizational targets for joint investigation by Strike Force
members and provides tactical and operational intelligence to support
Strike Force operations. Customs intelligence personnel are also
assigned to EPIC and the Joint Interagency Task Force East
(JIATF-East).
Customs' in-house collection capability is heavily weighted towards
human intelligence, which largely comes from Customs inspectors and
investigators who obtain information during their normal interdiction
and investigation activities. Inspectors and investigators collect
photographic intelligence. Investigators also conduct
court-authorized electronic surveillance of individuals and
organizations suspected of drug-trafficking. In addition, Customs
operates intelligence collection programs that provide tactical and
operational intelligence to assist Customs in its enforcement and
regulatory missions, including counterdrugs.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:6.3
Customs intelligence analysts develop a variety of intelligence
products regarding drug-smuggling individuals, organizations,
transportation networks, and patterns and trends to further their
investigations and seizures and generate other investigative and
interdiction targets. Types of counterdrug intelligence products
produced by Customs analysts at headquarters and/or field units
include investigative support products, such as link and post seizure
analyses; threat assessments; trend reports on drug-smuggling and
seizure activities and methods; profiles of drug-smuggling
organizations; and actionable intelligence reports and narcotics
enforcement leads that facilitate the interdiction of drug shipments
and/or apprehension of drug traffickers.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:6.4
As of October 1, 1997, Customs was authorized 382 intelligence
research specialist positions of which 309 were filled. Customs'
Intelligence and Communication Division estimated that 196 full-time
equivalent (FTE) positions (63 percent) represented the proportion of
duties that its 309 on-board intelligence research specialists
dedicated to counterdrug activities.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:6.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 \a
1996 \a
1997 $14.4\b
1998 \a
----------------------------------------------------------------------
\a No estimates were provided for fiscal years 1995, 1996, and 1998.
\b Customs estimated that 196 full-time equivalents represented the
proportion of duties that its 309 intelligence research specialists
on board as of October 1, 1997, dedicated to counterdrug activities.
From this estimate, it estimated that it spent $14.4 million for
counter-drug activities in fiscal year 1997, based on the average
salaries and expenses allocation for the Office of Investigations.
DOMESTIC AIR INTERDICTION
COORDINATION CENTER
--------------------------------------------------------- Appendix I:7
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:7.1
Customs' Domestic Air Interdiction Coordination Center's (DAICC)
counterdrug mission is to detect drug-smuggling aircraft entering the
United States and coordinate their apprehension with appropriate
counterdrug enforcement agencies.
The DAICC's counterdrug intelligence activities are conducted under
the Customs Service's statutory authority (i.e., the Tariff Act of
1930, as amended, and certain provisions of U.S.C. 18 and 19),
particularly 19 U.S.C. 1590, which addresses smuggling by air.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:7.2
The DAICC represents Customs' primary detection and monitoring
effort. Using a wide variety of civilian and military ground-based
radars, tethered aerostat radars, airborne reconnaissance aircraft,
and other detection assets, DAICC conducts 24-hour surveillance along
the entire southern border of the United States, Puerto Rico, and
into the Caribbean. When suspect aircraft are observed crossing the
U.S. border, the Center orders the launch of appropriate Customs
interdiction aircraft and coordinates apprehension of drug
traffickers with the appropriate law enforcement agencies. The
Center receives intelligence from the JIATFs and others regarding
suspect aircraft entering its area of responsibility. In addition,
JIATF-East relies on the Center to sort aircraft as they depart
source and transit nations to identify suspect drug-smuggling
aircraft coming toward the eastern United States.
The DAICC's Intelligence Branch provides tactical and operational
intelligence support regarding air interdiction and enforcement
operations to the Center's director, staff, and radar operations and
to other Customs units and agencies in the counterdrug community,
such as DOD. The Branch analyzes radar-tracking data of suspected
drug-trafficking aircraft crossing or landing short of the U.S.
border or making drug airdrops to vessels or vehicles within the U.S.
border. The Branch collects and analyzes these tracking data as well
as spot reports from various federal, state, and local enforcement
agencies and concerned citizens regarding suspicious private aircraft
and/or suspected drug-smuggling via private aircraft. Its analyses
are provided in usable drug air intelligence formats to appropriate
DAICC and Customs officials and other agencies.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:7.3
The types of intelligence products produced by the DAICC's
Intelligence Branch include briefings; spot reports; daily
intelligence reports; short landing notifications (i.e., reports of
suspect aircraft landings short of the U.S. southwest border); trend
publications, such as reports on air-smuggling patterns in certain
southwest border areas; and other products to support the
interdiction of private aircraft drug smugglers. The Center also
produces strategic intelligence in the form of an annual air threat
assessment.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:7.4
As of October 1, 1997, DAICC was authorized nine intelligence
research specialist positions, of which eight were filled. These
personnel are included in the personnel totals for the Customs
Service.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:7.5
DAICC spending is included in the Customs Services' $14.4 million
estimate of counterdrug spending for fiscal year 1997.
FINANCIAL CRIMES ENFORCEMENT
NETWORK
--------------------------------------------------------- Appendix I:8
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:8.1
The Financial Crimes Enforcement Network's (FinCEN) mission is to
support and strengthen domestic and international anti
money-laundering efforts and to foster interagency and global
cooperation to that end through information collection, analysis, and
sharing; technical assistance; and innovative and cost-effective
implementation of Treasury authorities.
FinCEN acts as a link among the law enforcement, financial, and
regulatory communities and serves as the nation's central point for
broad-based intelligence and information sharing related to
money-laundering and other financial crimes. FinCEN uses
counter-money-laundering laws, such as the Bank Secrecy Act, to
require reporting and record-keeping by banks and other financial
institutions. This record-keeping preserves a financial trail for
investigators to follow as they track criminals and their assets.
FinCEN provides assistance to federal, state, local, and
international agencies engaged in money-laundering prevention and
enforcement; an estimated 50 percent of its efforts support
counterdrug investigations.
FinCEN conducts its activities under the statutory authority of the
Bank Secrecy Act (P.L. 91-508, titles I and II (1970)) codified, as
amended, in sections of titles 12, 18, and 31 U.S.C.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:8.2
FinCEN primarily provides both operational and strategic analyses to
support law enforcement efforts, including counterdrug intelligence
efforts. FinCEN's operational support is designed to provide
information and leads on criminal organizations and activities that
are under investigation by law enforcement agencies. This support is
tailored to individual requests and may range from a basic search of
databases on a single subject to detailed, in-depth analysis of the
financial aspects of major criminal organizations. Occasionally,
FinCEN is also asked to provide time-sensitive tactical support, such
as responding to a request for a search of certain databases in
support of an imminent arrest. Analysts also provide information
through FinCEN's Artificial Intelligence System on previously
undetected possible criminal organizations and activities. FinCEN's
strategic analysis involves collecting, processing, analyzing, and
developing intelligence on the emerging trends, patterns, and issues
related to the proceeds of illicit activities.
As of October 1, 1997, the Office of Investigative Support and Office
of Research and Analysis formed the principal FinCEN units that
produce intelligence products in support of counterdrug enforcement
efforts. The Office of Investigative Support serves as the initial
contact point for requests for investigative support from law
enforcement agencies and oversees the operations center and
Artificial Intelligence Unit. The Office of Research and Analysis
identifies, analyzes, and reports on trends, patterns, and
fluctuations in currency movements and actual as well as potential
money-laundering activity.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:8.3
Using financial, commercial, and law enforcement databases, FinCEN
provides various intelligence products that support counterdrug
enforcement efforts, including database extracts regarding the
financial transactions of a single drug-trafficking subject or
detailed, in-depth analyses of financial aspects of major
drug-trafficking organizations; self-generated or requested
investigative leads developed from its Artificial Intelligence
System, such as potential subjects (individuals or organizations)
involved in counterdrug-related money-laundering; and reports on
emerging trends, patterns, and issues related to money-laundering,
such as currency movements to and from federal banks; regional threat
assessments to support state-level anti money-laundering legislative
efforts; and reports/advisories on country-specific money-laundering
threats or other issues.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:8.4
As of October 1, 1997, FinCEN estimated that 90 of its total
authorized positions and 83 of its total personnel on board were
engaged in counterdrug-related support. These estimates include 45
authorized intelligence analyst positions and 32 on-board
intelligence analysts. These figures are based on FinCEN's estimate
that about 50 percent of its resources are engaged in
counterdrug-related support.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:8.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 \a
1996 $11.2
1997 11.4
1998 11.9\b
----------------------------------------------------------------------
Note: These figures are based on FinCEN's estimate that about 50
percent of its efforts support counterdrug activities.
\a No estimate was provided for 1995.
\b Figure reflects an estimate of the amounts appropriated for
counterdrug activities.
U.S. COAST GUARD
--------------------------------------------------------- Appendix I:9
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------- Appendix I:9.1
The U.S. Coast Guard is the lead agency for maritime law
enforcement. It collects air and maritime intelligence to support
illegal alien migration, maritime safety, fisheries violations, and
counterdrug operations at the operational level. Its intelligence
collection programs include domestic and foreign human, signals, and
imagery intelligence sources.
The Coast Guard conducts its counterdrug operations under the
statutory authority of 14 U.S.C. 2, 14 U.S.C. 89, 14 U.S.C. 93
(e), and 14 U.S.C. 143.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------- Appendix I:9.2
The Coast Guard produces tactical, operational, and strategic
counterdrug intelligence information to support Coast Guard
operations. The Coast Guard interfaces with the Crime and Narcotics
Center; the El Paso Intelligence Center; the National Drug
Intelligence Center; DEA Intelligence; U.S. Customs Service
Intelligence; Joint Interagency Task Forces East and West; and
foreign, state, and local law enforcement agencies.
COAST GUARD INTELLIGENCE
COORDINATION CENTER
----------------------------------------------------- Appendix I:9.2.1
The Coast Guard Intelligence Coordination Center provides strategic
intelligence support to Coast Guard commands and missions. The
Center is divided into four sections: the Watch, Imagery
Exploitation, Analysis, and Collections Management sections.
-- The Watch Section is an all-source, 24-hour-a-day operation that
provides indications and warning information and serves as a
focal point between the Coast Guard and national intelligence
centers and law enforcement agencies for substantive level issue
coordination.
-- The Imagery Exploitation Section provides tactical and strategic
imagery information to support Coast Guard commands and missions
and JIATFs East and West.
-- The Analysis Section provides strategic and warning intelligence
information to Coast Guard commanders.
-- The Collection Management Section submits Coast Guard
intelligence requirements to the Intelligence Community and
disseminates proactive and reactive all-source intelligence
information to Coast Guard units.
AREA INTELLIGENCE
DIVISIONS
----------------------------------------------------- Appendix I:9.2.2
The Coast Guard has two Area Intelligence Divisions which provide
operational intelligence in support of all Coast Guard missions
including counterdrug operations. The Atlantic Area Intelligence
Division, located in Portsmouth, Virginia provides intelligence
support to the Coast Guard Atlantic Area, Atlantic Maritime Defense
Zone, and Fifth Coast Guard Division. The Pacific Area Intelligence
Division, in Alameda, California provides intelligence support toto
the Coast Guard Pacific Area, Pacific Maritime Defense Zone, and the
Eleventh Coast Guard District.
MARITIME INTELLIGENCE
CENTER
----------------------------------------------------- Appendix I:9.2.3
The Maritime Intelligence Center in Miami, Florida serves as the
intelligence office for the Seventh Coast Guard District and provides
tactical intelligence support of counterdrug, illegal alien
migration, and national security missions.
COAST GUARD LAW
ENFORCEMENT SUPPORT TEAM
----------------------------------------------------- Appendix I:9.2.4
The Law Enforcement Support Team is an Atlantic Area command located
in Miami, Florida which collects tactical intelligence information in
support of Coast Guard operations throughout the Atlantic Area, but
primarily in support of counterdrug operations in the Caribbean.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------- Appendix I:9.3
The Coast Guard's intelligence offices provide tailored Coast Guard
specific counterdrug intelligence such as threat assessments; lookout
lists, which are special alerts for persons and vessels; post-seizure
reports; spot reports; intelligence briefings; and daily and weekly
intelligence summaries. The Coast Guard also provides input to the
counterdrug community's cocaine flow assessment.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------- Appendix I:9.4
As of October 1, 1997, the Coast Guard had 108 FTE staff assigned to
counterdrug intelligence activities. Of these, 75 FTE are assigned
to Coast Guard locations, and 33 were detailed to other
organizations. Staffing levels are calculated on a FTE basis because
counterdrug intelligence is only one of the missions of Coast Guard
Intelligence personnel.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------- Appendix I:9.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $1.7
1996 1.9
1997 7.6
1998 8.0\a
----------------------------------------------------------------------
Note: Fiscal years 1995 and 1996 amounts do not include personnel
costs for counterdrug intelligence operations. Personnel costs are
reflected in the fiscal year 1997 and 1998 figures.
\a Figure reflects the amount requested.
JOINT TASK FORCE SIX
-------------------------------------------------------- Appendix I:10
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:10.1
Joint Task Force Six's (JTF-6) mission is to provide effective title
10 domestic counterdrug operational, intelligence, engineer, and
general support as requested by law enforcement agencies.
JTF-6 conducts its counterdrug activities under the statutory and
other authority of Oct. 15, 1989 Forces Command (FORSCOM)
Operational Order: National Defense Authorization Act (NDAA) fiscal
year 1990; NDAA fiscal year 1991; NDAA fiscal year 1993; Chief Joint
Chiefs of Staff Instruction 3710.01 of May 28, 1993; DOD Guidance of
Oct. 28, 1993; FORSCOM Counterdrug Employment Guidance of Feb. 14,
1994; FORSCOM Limited Delegation of Authority of Aug. 17, 1994;
FORSCOM Message of Aug. 1, 1995; FORSCOM Delegation of Authority of
Apr. 16, 1996; and Atlantic Command Message JTF-6 Command
Relationship of Apr. 9, 1997.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:10.2
The Intelligence Directorate at JTF-6 provides tactical and
operational intelligence in direct support of the command, drug law
enforcement agencies, and DOD counterdrug operators in the
continental United States. The Directorate comprises three divisions
that provide intelligence information for DOD military forces (title
10) conducting counterdrug support missions. These are the
Operations Support, Tactical Support, and the Training and Assessment
Divisions.
-- The Operations Support Division has three branches: the
Collection Management, Foreign Analysis, and Special Security
Office branches. The Collection Management Branch supports
strategic and tactical collection initiatives; mapping,
charting, and geodesy support; and imagery/photo support. The
Foreign Analysis Branch provides intelligence to the Commander
on subjects such as cross border drug-smuggling methods,
transportation modes, and potential drug-smuggling routes to
advise drug law enforcement agencies on the best use and
positioning of DOD units in counterdrug support operations. The
Special Security Office provides secure communications for the
Intelligence Directorate.
-- The Tactical Support Division is responsible for developing
preparatory products for specific terrain, potential threats,
and Force Protection intelligence to ensure the security and
safety of title 10 forces on approved counterdrug support
missions. The Division also produces specialized intelligence
products such as narcotics recognition and booby trap
recognition guides for title 10 forces and local drug law
enforcement agencies. The Division conducts liaison activities
with federal, state, and local drug law enforcement agencies.
-- The Training and Assessment Division provides training to drug
law enforcement agencies on intelligence processes and threat
assessment development and conducts comprehensive studies of
HIDTA intelligence architectures to assist in determining the
most effective and productive intelligence structure.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:10.3
JTF-6 issues intelligence estimate reports, which provide information
necessary for the planning of counterdrug operations by JTF-6
personnel and deploying title 10 forces. Intelligence estimates
include information such as the drug-trafficking threat in the area,
methods of operation, geographic and hydrographic features of the
area, hazards to counterdrug forces, and probable courses of action.
JTF-6 produces terrain analysis guides; intelligence handouts such as
A Reference Guide to Mexican Military Vehicles, Weapons and
Equipment; imagery reports; vulnerability assessments; and special
products such as the Aircraft Recognition Guide and the Booby Trap
Guide for Cannabis Missions.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:10.4
As of October 1, 1997, 53 staff were assigned to the Directorate of
Intelligence at JTF-6. There are 5 management, 1 planning, 5
security, and 42 analytical personnel.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:10.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $2.5
1996 3.6
1997 5.3
1998 4.6\a
----------------------------------------------------------------------
\a Figure reflects the amount requested.
JOINT INTERAGENCY TASK FORCE
EAST
-------------------------------------------------------- Appendix I:11
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:11.1
The Joint Interagency Task Force East's (JIATF-East) mission is to
plan, conduct, and direct interagency detection, monitoring, and
sorting operations of air and maritime drug-smuggling activities
within its area of responsibility. JIATF-East provides tactical and
operational intelligence information on these activities to national
apprehending authorities or international law enforcement agencies to
maximize the disruption of drug transshipments within the transit
zone in their area of responsibility of the Atlantic, Caribbean, and
Eastern Pacific oceans.
JIATF-East conducts its counterdrug intelligence activities under the
statutory authority of the National Interdiction Command and Control
Plan dated October 9, 1997.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:11.2
JIATF-East conducts intelligence fusion activities necessary to
support its internal operations, the operational forces under its
tactical control, and support for law enforcement activities in its
area of responsibility.
The JIATF-East Intelligence Directorate is divided into the
Collections Management and Operational Intelligence Divisions.
Although not a subordinate element, the Cryptologic Services Group
supports the Intelligence Directorate in the all-source fusion and
analysis process.
-- The Collections Management Division develops and manages
all-source intelligence collection programs to support the
detection and monitoring mission. The Division also manages an
imagery cell, which is responsible for imagery exploitation
supporting the Watch and Tactical Support Branches.
-- The Operational Intelligence Division is the analytical
component of the Intelligence Directorate and is divided into
five branches: Watch; Tactical Support; Trends; Estimates and
Special Projects; Information Management; and Tactical Analysis
Teams and Liaison Officers (TAT/LNO). The TAT/LNO Branch is
responsible for managing remote analytical elements in locations
throughout the JIATF-East area of responsibility. These
elements support JIATF-East and in-country drug law enforcement
operations.
-- The Cryptologic Services Group is a representative of the
National Security Agency and provides signals intelligence
support directly to the Director, JIATF-East.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:11.3
JIATF-East counterdrug intelligence products include analyts, which
are abbreviated analyses of specific topics; daily intelligence
summaries; spot reports; quarterly threat assessments; and monthly
priority vessel lists.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:11.4
As of October 1, 1997, JIATF-East had 76 staff assigned to its
Intelligence Directorate. There were 33 analysts, 12 watch
personnel, 18 security and 3 collection management personnel, 3
liaison officers, and 7 administrative support staff.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:11.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $7.3
1996 6.4
1997 6.1
1998 6.1\a
----------------------------------------------------------------------
\a Figure reflects the amount requested.
JOINT INTERAGENCY TASK FORCE
WEST
-------------------------------------------------------- Appendix I:12
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:12.1
The Joint Interagency Task Force West's (JIATF-West) mission is to
apply DOD-unique resources to conduct detection and monitoring
operations and to support efforts of law enforcement agencies and
country teams to disrupt international drug-trafficking throughout
the U.S. Pacific Command area of responsibility.
JIATF-West conducts its counterdrug intelligence activities under the
statutory authority of 10 U.S.C. section 371; the Defense
Authorization Act of fiscal year 1991, as amended; PDD 35; PDD 14;
PDD 44; the National Interdiction Command and Control Plan of 1994;
and the National Drug Control Strategy.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:12.2
JIATF-West provides all-source tactical and operational intelligence
support to operational assets, law enforcement agencies, and the
Director, JIATF-West. The Intelligence Directorate at JIATF-West has
three major branches: the Operations Intelligence, Collections, and
Analysis branches.
-- The Operations Intelligence Branch provides direct intelligence
support to detection and monitoring forces operating under
JIATF-West control.
-- The Collections Branch conducts coordination to employ theater
and national collection assets to fill counterdrug intelligence
requirements as identified by JIATF-West analysts and law
enforcement agencies.
-- The Analysis Branch consists of three teams which are organized
geographically based upon the drug-trafficking threat in the
Pacific Command area of operations. These three teams are the
Southeast Asia, Southwest Asia, and Latin American teams. The
Southeast and Southwest Asia teams are primarily focused on
heroin movement to the United States, with a secondary focus on
cannabis and methamphetamine trafficking. The Latin American
team focuses on cocaine, particularly as it impacts the Eastern
Pacific area of responsibility. All three teams fuse all-source
intelligence in support of specific law enforcement case
requirements and identify intelligence gaps and requirements.
In addition, they deploy in support of Country teams and DEA
offices throughout Asia.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:12.3
The Intelligence Directorate at JIATF-West develops and disseminates
tactical and operational studies to law enforcement agencies, the
counterdrug intelligence community and country teams as appropriate.
The Directorate also develops products based on standing requirements
including counterdrug intelligence updates, target studies, and
various country and regional assessments. The Directorate also
disseminates time-sensitive, all-source fused intelligence in the
form of advisories, and analyts to forces operating under their
tactical control as well as other interested organizations. Other
products include telephone toll analyses, link charts and data bases
to support specific case requirements and law enforcement agencies.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:12.4
As of October 1, 1997, JIATF-West had 33 of the 38 authorized
positions filled in its Intelligence Directorate. There were 19
analysts, 6 watch personnel, 4 management and administrative staff,
and 4 collection managers.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:12.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $3.1
1996 3.2
1997 3.1
1998 2.5\a
----------------------------------------------------------------------
\a Figure reflects the amount requested.
JOINT INTERAGENCY TASK FORCE
SOUTH
-------------------------------------------------------- Appendix I:13
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:13.1
The Joint Interagency Task Force South's (JIATF-South) mission is to
execute national counterdrug policy by supporting U.S. federal
agencies and participating nations counterdrug efforts to deter,
degrade, and disrupt the production and transshipment of illegal
drugs within the JIATF-South area of responsibility, which includes
the land mass of South America.
JIATF-South conducts its counterdrug intelligence activities under
the statutory authority of 10 U.S.C. section 124.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:13.2
While the JIATF-South was designated as a JIATF, it did not have a
formally approved JIATF organization structure until March 16, 1998.
Before then, it had been operating as a part of the operations group
at the U.S. Southern Command.
The JIATF-South Intelligence Directorate provides tactical and
operational intelligence support to the JIATF-South counterdrug
mission. The Intelligence Directorate conducts an analysis of source
zone illicit drug targets and is responsible for integrating the
efforts of several nations in the counterdrug effort.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:13.3
JIATF-South products include daily and weekly intelligence summaries
and forecasts, monthly reports on TAT activities, briefings to
JIATF-South operational elements, The Quarterly Source Region Cocaine
Movement Assessment, and a link analysis of drug-trafficking
organizations.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:13.4
As of October 1, 1997, the JIATF-South Intelligence Directorate had
19 personnel assigned of the 35 authorized. There were 17 analysts
and
2 management personnel.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:13.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $3.3
1996 3.2
1997 3.4
1998 3.6\a
----------------------------------------------------------------------
\a Figure reflects the amount requested.
OFFICE OF NAVAL INTELLIGENCE
-------------------------------------------------------- Appendix I:14
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:14.1
The Office of Naval Intelligence (ONI) Counterdrug Division's mission
focuses on detecting and monitoring illicit drug activities in the
transit zone (from the shore of the source country to the U.S.
shore). The division satisfies goals 4 and 5 of the counterdrug
strategy, with emphasis placed on detection and monitoring
activities.
ONI conducts its counterdrug intelligence activities under the
statutory authority of 10 U.S.C. sections 124 and 371, et seq.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:14.2
The Counterdrug Division provides strategic and tactical maritime
intelligence primarily to federal law enforcement and DOD counterdrug
agencies. With the exception of the staff assigned to the Coast
Guard Intelligence Coordination Center or detailed to other
organizations, all of ONI's counterdrug intelligence analysts are
assigned to the Counterdrug Division of the Civil Maritime Analysis
Department.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:14.3
ONI provides reports and access to maritime databases that support
law enforcement's interdiction efforts. For example, ONI produces
Hidden Compartments, which provides information, photographs, and
plans for various concealment methods on known smuggling vessels, and
the Maritime Drug Smuggler's Handbook, which provides information on
smuggling groups and their associated vessels. ONI also maintains a
database on ships over 100 gross tons and recently began maintaining
a section of the database on vessels under 100 gross tons, as these
vessels are most often used in drug-smuggling. ONI also provides
extensive on-scene maritime intelligence support to Latin America
Tactical Analysis Teams and regional law enforcement agencies that
are working cases involving international maritime drug
transshipments.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:14.4
As of October 1, 1997, 27 of the 29 authorized intelligence positions
in the ONI Counterdrug Division were filled. Four were imagery
analysts who worked at the Coast Guard Intelligence Coordination
Center, 1 person was assigned to the Director if Central Intelligence
Crime and Narcotics Center, 1 was assigned to the El Paso
Intelligence Center, and the
21 remaining staff worked at ONI.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:14.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $4.0
1996 3.9
1997 4.0
1998 3.9\a
----------------------------------------------------------------------
\a Figure reflects the amount requested.
TACTICAL ANALYSIS TEAMS
-------------------------------------------------------- Appendix I:15
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:15.1
The Tactical Analysis Teams' (TAT) mission is to serve as conduits
for timely, geographically focused tactical and operational
counterdrug intelligence analyses for U.S. embassy country teams,
DOD theater staff, host nations, and U.S. law enforcement agencies.
TATs analyze foreign intelligence products for use in support of
counterdrug detection, monitoring, and interdiction in Central
America and South America, Mexico, and the Caribbean. The U.S.
Southern Command and JIATF-East provide oversight management, but TAT
staff work under the operational control of the Deputy Chief of
Mission and receive day-to-day guidance from the DEA's country
attache.
The TATs conduct their counterdrug intelligence activities under the
statutory authority of 10 U.S.C. 371 (c), 10 U.S.C. 373 (1), 10
U.S.C. 374 (b)(2)(D), and Secretary of Defense/Atlantic Command
deployment orders.
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:15.2
TATs are organized differently at the individual embassies they
support and provide fused operational intelligence support for host
nation interdiction of air and maritime narcotics shipments and
processing (airdrops, coastal and offshore deliveries, at-sea
transshipments, clandestine airstrips, laboratory locations, and
cache sites).
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:15.3
The TATS do not provide products. Instead, they fuse information
from a variety of sources into a collective database. When
operational information is needed, intelligence extracts are produced
from the database and are passed to the various embassy agencies.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:15.4
As of October 1, 1997, 42 personnel were stationed at 13 TATs in
embassies in Mexico and South America.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:15.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $1.1
1996 1.2
1997 1.3
1998 1.4\a
----------------------------------------------------------------------
Note: Funding figures in table are for the Information Analysis
Center only.
\a Figure reflects the amount requested.
About $2 million a year that is spent by TAT personnel at other
embassies is funded under the JIATF-South Intelligence Directorate
budget and is not included in the table.
DEPARTMENT OF STATE
-------------------------------------------------------- Appendix I:16
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:16.1
The mission of the State Department's Bureau of International
Narcotics and Law Enforcement Affairs is to assist foreign
governments in eradicating narcotics crops, destroying illicit
laboratories, training interdiction personnel, and developing
education programs to counter drug abuse. The Bureau of Intelligence
and Research (INR) produces finished intelligence analyses primarily
for the Secretary of State and her principal advisers as well as for
other senior Washington policymakers. It also participates in a
number of Intelligence Community-wide activities, including
assessments and estimates.
The State Department conducts its counterdrug activities under 22
U.S.C. 2651, which establishes the State Department, and sections
481 and 482 of the Foreign Assistance Act (22 U.S.C. 2291).
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:16.2
Within INR, the Office of Analysis for Terrorism, Narcotics, and
Crime provides briefings and analyses related to illicit narcotics to
Bureau of International Narcotics and Law Enforcement and senior
Department personnel. The Office analyzes news articles, foreign
service reports, and intelligence products. While the Department of
State is not formally engaged in intelligence collection, diplomatic
reporting provides human intelligence that is available not only to
the Office of Analysis for Terrorism, Narcotics, and Crime but also
to other intelligence consumers. INR's six regional analysis offices
occasionally produce finished intelligence on drug-related issues,
generally dealing with the counterdrug policies of foreign
governments.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:16.3
The Office of Analysis for Terrorism, Narcotics, and Crime prepares
finished intelligence analyses for The Secretary's Morning
Intelligence Summary as well as ad hoc memoranda and spot reports to
specific senior Department policymakers. The Office also
participates in the preparation of the International Narcotics
Strategy Report used in the annual drug "certification" exercise.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:16.4
As of October 1, 1997, the State Department had three full-time
intelligence research specialists for narcotics analysis.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:16.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 $ 0.2
1996 0.2
1997 0.2
1998 0.2\a
----------------------------------------------------------------------
\a Figure reflects the amount requested.
HIGH INTENSITY DRUG-TRAFFICKING
AREA PROGRAM
-------------------------------------------------------- Appendix I:17
MISSION AND STATUTORY OR
OTHER AUTHORITY
------------------------------------------------------ Appendix I:17.1
The High Intensity Drug-Trafficking Area (HIDTA) Program's
counterdrug intelligence mission is to facilitate the flow of
intelligence among federal, state, and local law enforcement
agencies.
ONDCP conducts this program under the Anti-Drug Abuse Act of 1988, as
amended (P.L. 100-690, Nov. 18, 1988).
COUNTERDRUG INTELLIGENCE
ORGANIZATION AND ROLE
------------------------------------------------------ Appendix I:17.2
As of October 1, 1997, the Director of the ONDCP had designated 17
areas as the most critical drug-trafficking areas of the United
States.\9 Funded by ONDCP, the HIDTA Program attempts to reduce
drug-trafficking in the United States by developing partnerships
among local, state, and federal drug-control agencies in the
designated areas and creating systems for them to coordinate their
efforts. Program guidance requires that each HIDTA develop a
regional intelligence unit to provide for event and criminal subject
deconfliction, ad hoc post-drug seizure analysis, collocated access
to major databases, access to regional intelligence, and collection
of trend and pattern data.
As of October 1, 1997, all 17 HIDTAs had intelligence units in
various stages of development. Most HIDTAs have one regional
intelligence unit to provide intelligence and information-sharing
services. Some HIDTAs have more than one intelligence unit that
together makes up the HIDTA intelligence initiative for that area.
For example, the Los Angeles HIDTA intelligence initiative includes
(1) the Los Angeles Joint Drug Intelligence Group, which conducts
strategic and operational intelligence analyses; (2) the Los Angeles
County Regional Criminal Information Clearinghouse, which provides
24-hour deconfliction and tactical intelligence services and
operational analyses; and (3) the Inland Narcotics Clearinghouse,
which primarily provides intelligence support to enforcement efforts
in its designated geographic area within the overall HIDTA.
In addition to the intelligence units, each HIDTA is required to
develop joint drug task force enforcement efforts, focusing on the
most significant international, national, regional and local
drug-trafficking and drug money-laundering organizations operating in
its area. These task forces, as well as the participating federal,
state, and local enforcement agencies, play a principal role in
counterdrug intelligence collection efforts at the HIDTAs. HIDTA
task forces and participating law enforcement officers collect human
and photographic intelligence and conduct court-authorized electronic
surveillance of individuals and organizations suspected of illegal
drug activities during their normal enforcement activities.
--------------------
\9 The 17 HIDTAs include Los Angeles, Houston, Miami, New York, and
the Southwest border (established in 1990); Puerto Rico/U.S. Virgin
Islands and Washington D.C./Baltimore (established in 1994); Atlanta,
Chicago, Philadelphia/Camden (established in 1995); the Pacific
Northwest, Lake County--Indiana, Midwest, Rocky Mountain, and Gulf
Coast (designated in 1996); and San Francisco and Southeast
Michigan/Detroit (established in 1997). The Southwest border HIDTA
is divided into five partnerships, including the California Border
Alliance Group, the Arizona Alliance Planning Committee, the New
Mexico Partnership, the West Texas Partnership, and the South Texas
Partnership. In addition, in February 1998, the ONDCP Director
designated three new HIDTAs, including Milwaukee, Appalachia, and
Central Florida.
COUNTERDRUG INTELLIGENCE
PRODUCTS
------------------------------------------------------ Appendix I:17.3
The types of intelligence products produced by many HIDTA
intelligence units include responses to queries received from HIDTA
task forces and federal, state, and local law enforcement agencies
within their areas, such as information obtained and/or analyzed from
their search of various law enforcement and commercial databases;
organizational or individual profiles that provide information on
specific drug organizations or individual traffickers; telephone toll
and other link analyses; post-drug seizure analyses; annual
assessments of the drug threat in their areas and how that threat may
impact other areas; officer bulletins regarding particular
counterdrug enforcement issues; monthly intelligence summaries; and
analyses, such as charts and graphics, prepared for presentation at
trials or grand juries.
COUNTERDRUG INTELLIGENCE
PERSONNEL
------------------------------------------------------ Appendix I:17.4
Federal counterdrug intelligence personnel that participate in the
HIDTA program are included in their respective parent agency's
personnel estimates.
COUNTERDRUG INTELLIGENCE
SPENDING
------------------------------------------------------ Appendix I:17.5
(Dollars in millions)
Fiscal year Amount
---------------------------------------- ----------------------------
1995 \a
1996 \a
1997 $9.6
1998 11.0\b
----------------------------------------------------------------------
\a No amounts were provided for 1995 and 1996.
\b Figure reflects the amount appropriated.
NATIONAL DRUG CONTROL STRATEGY
GOALS SUPPORTED BY COUNTERDRUG
INTELLIGENCE ORGANIZATIONS
========================================================== Appendix II
ONDCP has established five goals to reduce illegal drug use:
1. Educate and enable America's youth to reject illegal drugs as
well as alcohol and tobacco.
2. Increase the safety of America's citizens by substantially
reducing drug-related crime and violence.
3. Reduce health and social costs to the public of illegal drug use.
4. Shield America's air, land, and sea frontiers from the drug
threat.
5. Break foreign and domestic drug sources of supply.
Three of the strategy's five goals--goals 2, 4, and 5--are supported
by counterdrug intelligence, which plays an important role in the
execution of the strategy. The following table identifies which goal
each counterdrug intelligence organization supports.
Table II.1
National Drug Control Strategy Goals
Supported by Counterdrug Intelligence
Organizations
Goal 2 Goal 4 Goal 5
Organization ------ ------ ------
Justice
DEA x x x
EPIC x x
FBI x x
NDIC x
RISS Program x x
Treasury
Customs Service x x x
DAICC x
FinCEN x x
Transportation
Coast Guard x x
Defense
JTF-6 x x x
JIATF-East x x
JIATF-West x x
JIATF-South x x
TAT\a x
State
INR x
ONDCP
HIDTA Program x x x
National foreign intelligence organizations\b x x
----------------------------------------------------------------------
Legend: X indicates the 1997 National Drug Control Strategy goals
supported by each counterdrug intelligence organization's efforts.
\a While DOD provides resources and communications support, DEA
provides day-to-day guidance.
\b Includes the DCI, NSA, DIA, NIMA and ONI.
Source: 1997 National Drug Control Strategy and our compilation
based on information provided by organizations with a principal role
in collecting and/or producing counterdrug intelligence.
ORGANIZATIONS VISITED DURING THIS
REVIEW
========================================================= Appendix III
Department of Justice
Drug Enforcement Administration
- Headquarters, Washington, D.C.
- Special Operations Division, Newington, Va.
- El Paso Intelligence Center, El Paso, Tex.
- El Paso District Office, El Paso, Tex.
- San Diego Division, San Diego, Calif.
Federal Bureau of Investigation
- Headquarters, Washington, D.C.
- Field Office, El Paso, Tex.
National Drug Intelligence Center
- Headquarters, Johnstown, Penn.
Immigration and Naturalization Service
- Headquarters, Washington, D.C.
- Border Patrol
- El Paso Sector, El Paso, Tex.
- San Diego Sector, San Diego, Calif.
Department of Treasury
U.S. Customs Service
- Headquarters, Washington, D.C.
- El Paso SAC Office, El Paso, Tex.
- Bridge of the Americas Port of Entry, El Paso, Tex.
- San Diego SAC Office, San Diego, Calif.
- Otay Mesa Cargo Facility, Otay Mesa, Calif.
- Domestic Air Interdiction Coordination Center, Riverside, Calif.
Financial Crimes Enforcement Network, Washington, D.C.
Department of Transportation
U.S. Coast Guard
- Headquarters, Washington, D.C.
- Intelligence Coordination Center, Suitland, Md.
Federal Aviation Administration
- Headquarters, Washington, D.C.
Department of Defense
Office of Drug Enforcement Policy and Support, Washington, D.C.
Joint Task Force Six, El Paso, Tex.
Joint Interagency Task Force East, Key West, Fla.
Joint Interagency Task Force West, Alameda, Calif.
Defense Intelligence Agency
- Counterdrug Analysis Directorate, Crystal City, Va.
National Security Agency
- Headquarters, Fort Meade, Md.
Navy
- Office of Naval Intelligence
- Counterdrug Analysis Division, Suitland, Md.
National Imagery and Mapping Agency
- Transnational Issues Division
- Counterdrug Branch, Crystal City, Va.
National Guard Bureau
- Headquarters, Washington, D.C.
Department of State
- Bureau of Intelligence and Research
- Office of Analysis for Terrorism, Narcotics, and Crime,
Washington, D.C.
Office of National Drug Control Policy
- Headquarters, Washington, D.C.
- Los Angeles High Intensity Drug-Trafficking Area, Los Angeles,
Calif.
- Southwest Border High Intensity Drug-Trafficking Area, San Diego,
Calif.
- West Texas High Intensity Drug-Trafficking Area Partnership,
El Paso Tex.
MAJOR CONTRIBUTORS TO THIS REPORT
========================================================== Appendix IV
NATIONAL SECURITY AND
INTERNATIONAL AFFAIRS DIVISION,
WASHINGTON, D.C.
Gary K. Weeter, Assistant Director
James F. Reid, Evaluator-in-Charge
Richard H. Yeh, Senior Evaluator
GENERAL GOVERNMENT DIVISION,
WASHINGTON, D.C.
Robert P. Glick, Senior Evaluator
Amy E. Lyon, Senior Evaluator
*** End of document. ***