Paul Pillar

The CIA and the Cult of Reorganization

A significant disadvantage is that bureaucratizing whatever is considered at the moment to be worthy of its own mission center makes for a less flexible and less nimble organization as issues change and especially as new (and sometimes difficult to recognize initially as important) issues emerge. The seeds of future intelligence failures can be found in the seams between the centers. Interface is important not just between collectors and analysts but also between analysts working issues that are different but may turn out to be related in important ways.

Another set of disadvantages stems from breaking up what would otherwise have been critical masses of people working in the same discipline and with the same skill set. Doing so is generally not conducive to enhancing specialized skills, whether those skills involve the craft of espionage, or of analysis, or something else. Particular mission centers, depending on who leads them and what are the relative weights of different types of people assigned to them, may tend to be co-opted by certain disciplines at the expense of the necessary professional care and feeding of those in other disciplines. The further separation of missions and operational control from the management of employees' careers (and the new scheme will retain existing directorates, including those for operations and for analysis, for that latter purpose) will tend to exacerbate issues of personnel management, including loosening the tie between effective contribution to a specific assigned mission and reward in the form of promotions. Retention of the existing directorate structure in addition to more mission centers also makes the whole organizational structure of the agency more complicated.

A principle too rarely recognized is that the advantages of a new organizational structure are uncertain (when compared to the existing structure, which is apt to have to have evolved over time as experience has shown what works and what doesn't), but the costs and disruptions associated with any major reorganization are certain and substantial. The disruption involves everything from having to forge new relationships with bosses, co-workers, and customers, to having to figure out exactly where new lines of responsibility are to be drawn. Rather than impeding accomplishment of the mission with such disruption, it often is better just to let people get on with their jobs—although anyone who makes this observation risks being rebuked as a stuck-in-the-mud resistor of change.

In the face of the inevitable trade-offs, the current organizational arrangement in the CIA, in which there are some integrated centers for selected issues such as terrorism but not for everything, is probably a reasonable compromise. Unmentioned in much of the commentary so far on the announced changes is how much had already been done, outside the centers, to enhance communication and cooperation between collectors and analysts. This includes physical changes made years ago to locate in adjacent office space the analysts and operations officers working on the same geographic areas.

What we most need to be wary of with these latest announced changes in the CIA's organization is not some wave of corrupting influences that will destroy the integrity of analysis. We should instead ask whether this is yet another of the many examples of a senior manager using reorganization to try to make his mark and leave a legacy, especially a legacy that won't be centered on unflattering matters such as strained relations with Congressional oversight committees.