Running Head: INTELLIGENCE SHARING STRATEGY Intelligence Sharing Strategy: The FBI Theodore Proia Colorado Technical University Theodore Proia INTELLIGENCE SHARING STRATEGY Theodore Proia The Federal Bureau of Investigations shortened the FBI, is the primary national intelligence and investigative body in the United States. It is a significant player within the intelligence community falling under the DOJ, Department of Justice's jurisdiction and directly reports to the Attorney General and the director of National Intelligence (DNI) (National Research Council, 2011; FBI, 2014; ODNI, 2014). Following the 9/11 bombings, the Intelligence community was faced with an enormous task which involved proving answers as to why the attack which presented so many chances before its execution was not foiled (Karam, 2015; Fox, 2013). This scenario saw the FBI alongside other intelligence agencies shift their mode of operations to encompass an intelligence and information sharing that would enable all organizations within the IC to share crucial information with the most relevant agencies which would allow them to work on such intelligence before the threat materialized. This paper, therefore, analyses the information sharing strategy of the FBI. FBI's Information Sharing Strategy A Brief History Since Inception, the FBI has always been embroiled in matters intelligence which includes collecting, analyzing and disseminating valuable information as well as counterintelligence for the sake of ensuring the homeland security is maintained (FBI, 2014; National Research Council, 2011). It was formed as a collection of thirty-four detectives in 1908. During this time they had no name but had a clear yet skewed mission which stated; carry out investigations for the Attorney General. In essence, this meant they could handle several federal criminal violations which involved issues such as the Neutrality Acts which paid clandestine attention to foreign intelligence matters as well as the prohibition against alien anarchists (Cecil, 2 INTELLIGENCE SHARING STRATEGY Theodore Proia 2017). This implies that at the beginning they were more involved with foreign intelligence, and not domestic intelligence concerns (ODNI, 2014). The onset of World War One saw the FBI alongside the navy intelligence develop a more prominent role in issues about homeland security, which then included counterintelligence. This was premised on the growing national threat and attacks on terrorist attacks on the home ground which increased their abilities to identify and ensure the deportation foreign enemy elements which were behind the attacks of the 1920' to help prevent the spread of such ideologies. The Congress then gave them more power allowing them to carry out investigations on behalf of the State Department (Fox, 2013). The FBI continued a massive expansion, into both foreign and domestic matters through most of the 20th century, until the 1990s when Islamic terrorists attacked the world trade center. This gave homeland terrorism a large part of the bureau's duties, as terrorism seemed to be on the rise, and mainly American and western entities became the primary targets. Change in strategy The 9/11 bombings provided a pivot on which the Bureau's strategy was changed (Nobel, 2016; Karam, 2015; Pfeifer, 2018). This is because the agencies involved in homeland security, as well as those tasked with foreign intelligence, failed to stop the attacks besides having enough intelligence on the terror suspect. This bottleneck was even compounded by the levels of privacy and secrecy that was a key component of the FBI and other organizations that dealt with intelligence (National Research Council, 2011). An analysis of these failures prompted an overhaul of the intelligence community information sharing strategies which in its bid to remove barriers of intelligence sharing, ensured that intelligence organizations would share information 3 INTELLIGENCE SHARING STRATEGY Theodore Proia with other security agencies from the tribal level to the federal government while critically paying attention to those organizations that were directly collocated to them. Present Day FBI: An Information and intelligence Strategy To help eliminate the bottlenecks that helped the terrorists of 9/11 to go free after being arrested days before they carried out the most deadly attacks within the U.S borders, the FBI embraced a hierarchical linear model of information sharing that ensured that part of its intelligence services, were open to almost all agencies within the Intelligence community from the highest to the lowest (National Research Council, 2011; Pfeifer, 2018; Cecil, 2017). This strategy involves offering analytical, and technological support to a group of intelligence and security agencies across the board. Divided into levels, the strategy sees the FBI Report to the President through the DNI, at the highest level (ODNI, 2014). Being Part of Homeland Security Council Policy Coordination on Information sharing also known as the National Security Council, they help coordinate and share information within the executive branch. At the national level, the FBI shares intelligence on terrorism through the application of available policies. At this level, they operate under the DNI where they share information with The DNI/Analysis (Deputy DNI for Analysis), the DNI/Chief information officer and the National Counterterrorism Center where all intelligence related to homeland terrorism is analyzed. Additionally, according to the Interagency Center Initiatives, the investigative agency participates and leads in a number of interagency centers that include the Terrorist Screening Center the Terrorist Explosive Device Analytical Center and the National Gang Information Seasons (Pfeifer, 2018; Fox, 2013; FBI, 2014). 4 INTELLIGENCE SHARING STRATEGY Theodore Proia Exchanging Information with State local and Tribal Bodies The agency combines its technical capabilities with the Information Sharing Environment (ISE) through the national strategy for information sharing (FBI, 2014). Through the State and Urban Network, Fusion Centers other agencies are enabled access to FBI's classified information. For instance, the e-Guardian is responsible for continuous sharing of unclassified intelligence on counterterrorism between local and state enforcement who search for the purported threat, whereas the Interagency Threat Assessment Coordination Group develops and coordinates report on intelligence. Under this level, the Law Enforcement Information Sharing enables the agency and law enforcers who operate in the geographical locations affected by the respective to be exchanged. Several programs take place under this category, where the OneDOJ enables the exchange of information between the FBI and other specialized agencies such as the DEA and ATF, the Law Enforcement Data Exchange (N-DEx) which enables other agencies to access sensitive but unclassified intelligence from the FBI's Database. Private Stakeholders Since Homeland Security affects all sectors, it is imperatives that the private sector is equally considered during the collection, analysis, and dissemination of intelligence. As seen necessary by the FBI, they will disseminate intelligence on incidents, threats vulnerabilities and consequences alongside other intelligence related to terrorism, while simultaneously protecting the information's source. This is enabled through several partnerships such as the InfraGard the Domestic Security Alliance council and the Cyber Initiative Resource Fusion Unit (FBI, 2014). 5 INTELLIGENCE SHARING STRATEGY Theodore Proia Foreign Partners Involves intelligence sharing with foreign intelligence agencies with regards to identified or suspected terrorists which call for flexibility and adequate security measures, which allows the FBI to protect Homeland Security working on foreign intelligence that affect the United States. Past and Present structure and Capabilities As previously stated, the FBI falls under the U.S Department of Justice which is headed by the Attorney General. Under the Attorney General, the FBI creates investigative agents for the sole purpose of enforcing federal laws (FBI, 2014; ODNI, 2014). However, given the explosive revelation of 2002 where an FBI agent sold intelligence for 15 years to the Soviet Union, the Attorney General barely exercises any power on the oversight role on the FBI, which instead, is a role left for the Inspector General. However, the agency reports to both the Attorney general and the Director of National Intelligence (DNI). It is headed by a Director, and his or her deputy. The FBI is divided into four executive departments. This includes the Criminal Investigations department which is further divided into cybercrime and the criminal Investigative Divisions. The second department is the counterterrorism and counterintelligence department which are further separate divisions under the same names. The Law Enforcement Service Department is also divided under the Laboratory Division and the Training division which deals with forensics and training of Law enforcing personnel on matters investigation. The fourth department is the administration which includes the Administrative services division and the Finance division. The laboratory is well equipped with modern technology which greatly influences the organization's capabilities which include; stopping terrorism, organized crime, cybercrime, civil rights violations as well as investigating 6 INTELLIGENCE SHARING STRATEGY Theodore Proia serious crimes such as major thefts or murder. They equally offer assistance to other law enforcement as needed (National Research Council, 2011; FBI, 2014). In the past however although the FBI was still under a Director, its structure was quite simple, as it was more involved with foreign affairs. However, this changed in a span of 100 years as more roles were added to them by the Congress, which consequently increased their capabilities. The FBI has come a long way. This has seen an evolution in its structure and capabilities. The 9/11 bombing was a situation that helped change the intelligence sharing landscape within agencies of the United States. With the establishment of the National Intelligence Strategy, organizations had to initiate methods and means of sharing valuable information with each other which would help ensure that Homeland Security is maintained. These saw organizations such as the FBI and CIA breakdown their secrecy and confidentiality wars to enable the amiable sharing of information between them and other intelligence entities. However, despite the change in the mode of operations, some barriers remained unsolved whereas newer one's cropped up (Fox, 2013). Technological Barrier The FBI is known for their application of cutting edge technology in the collection analysis and dissemination of data within its ranks as well as the intelligence community. This includes a technological infrastructure where the FBI provides Information Technology that enables them to share such intelligence with law enforcement and the intelligence community in a very secure and cost-efficient manner that falls consistently within the scope of the current law policy and program guidance (FBI, 2014; Cecil, 2017). Additionally, the strategy aims at offering technological standards that match the needs of the intelligence community. This 7 INTELLIGENCE SHARING STRATEGY Theodore Proia includes surveillance kits and equipment, biometric equipment's, analytic software and servers that can withstand attacks from viruses and hackers. For this purposes, the FBI receives funding from the national government under the security budgets. While this is a positive stride from the FBI, it equally poses a barrier as to how the FBI links with other intelligence organization and is quite costly (Fox, 2013). The first case of a technological barrier comes in terms of cost. The equipment utilized by individuals for collection, analysis, and dissemination is quite expensive. However, while the security budget would cover such costs fully due to the asset nature of this equipment, the changes associated with the technological industry demands constant upgrade of existing technologies and the assessment of emerging technology which may either be a threat to national security or may be used effectively to collect information to help raise homeland security. Additionally, terrorists are constantly looking for newer ways to go around technology in a bid to hide their actions, which demands that the FBI, stays ahead of them technologically if they are to prevent their actions. The budget is often stretched to the limit, which limits the functions of the FBI. Other intelligence organizations are equally unable to afford such equipment which demands that they use FBI's systems to view information that is relevant to their study. This is highly risky as it may see a breach of confidentiality where agents of other organizations may carelessly expose their clearances, which compromises the entire database (FBI, 2014). Secrecy, Confidentiality, and Classification The Intelligence community has established itself on the tenets of secrecy and confidentiality. For obvious reasons, this works to prevent the leakage of sensitive information back to the terrorists, who may simply detect changes in a law enforcement organization and change their course of action jeopardizing the anti-terrorism strategies in the process. On the 8 INTELLIGENCE SHARING STRATEGY Theodore Proia other hand, classification helps individuals with higher impact access to specific information, while locking the others out as the situation develops before letting agencies from other levels in on the matter (FBI, 2014; Karam, 2015; Pfeifer, 2018). These policies, however, especially those that deal with secrecy and confidentiality have been seen as barriers to information sharing especially where an agency is directly impacted by the intelligence. The FBI, for instance, is more likely to inform the DNI of a developing situation in the State of New York but may fail to issue the same information to the New York Police Department due to the classification of the intelligence and the level of NYPD in the FBI's intelligence sharing hierarchy. Classification in itself becomes a barrier since the NYPD are closer to the ground and may help with further investigation collaboratively with the FBI. The 9/11 attack witnessed a classic example of classification fails where two police departments arrested two plane hijackers prior to the attack. However, since they were both ticketed for speeding the police departments let them go. However, unknown to the police departments, the two individuals were on the CIA's watchlist. Similarly, the airlines that were used in the attack lacked information of the hijackers as the CIA could not share such information with the airline which is part of the private sector. In both scenarios, classification and excessive secrecy played a part in helping the terrorists succeed in their plans (Karam, 2015; Pfeifer, 2018; Nobel, 2016). Ethical and Privacy Considerations FBI's intelligence operations include collection, analysis, and dissemination of intelligence to help avert threats that if left to materialize may jeopardize homeland security. As such, they employ human and technological knowledge to obtain and make meaning of information, as well as human behavior which may allow the FBI and other local agencies to preemptively foil the terroristic plan (FBI, 2014; ODNI, 2014). As such, the information sharing 9 INTELLIGENCE SHARING STRATEGY Theodore Proia strategy is controlled by an FBI privacy protection policy as found within the Information Sharing Environment (ISE) that states that the FBI will provide intelligence regarding terrorism to other security agencies in a manner that is acceptable by all executive orders, applicable statutes, agency policy, and directives. In the same vein, information sharing is conducted in a manner that protects civil liberties and all other legal rights of a United States citizen. This highlights the commitment of the FBI towards the maintenance of individuals' rights in its quest to make America safe by providing trustworthy intelligence (FBI, 2014). In recent times, however, the FBI has come under heavy criticism for using aggressive surveillance techniques on suspected criminals and terrorist. For example, they have had altercations with members of the American Muslim community for planting bugs surveillance bugs in their phones and automobiles to monitor their communications and watch their movements in real time with the aim of identifying members of a specific cell which may help to foil such groups plan by identifying their leaders and peers. However, this would be considered unethical since despite American courts stating that the privacy of an individual suspected to be in cahoot with terrorist and terroristic activity is second to public safety. Additionally, the Supreme Court fails to explicitly highlight the rights to privacy (FBI, 2014). The Intelligence Cycle The effective process by which raw information is gathered then developed into finished or completed information that can be used in the making of decisions and action by policymakers is known as the intelligence cycle or the intelligence process. The stages involved in the cycle are five in number, but the circuit can be complete only when there is the providence of feedback and requirements that have been revised by the decision makers. The stages include; direction 10 INTELLIGENCE SHARING STRATEGY Theodore Proia and planning, collection, processing, analysis, dissertation, and feedback (FBI, 2014; ODNI, 2014). Direction In this stage, guidance is gotten from the President, public officials, the president's aides, the National Security Council, and other agencies or governmental departments. Request for the intelligence is also initiated by them (ODNI, 2014). Collection Here, an intelligence collection plan is developed in response to the stage one requirements. This is done by an intelligent staff. The collection contains information from a number of intelligence gathering sources that include the Electronic Intelligence ( ELINT ), Signals Intelligence ( SIGINT ), Imagery Intelligence ( IMINT ), Publicly Available or Open Source Intelligence ( OSINT ) and Human Intelligence ( HUMINT ). Intelligence can also be sourced from other agencies (FBI, 2014). Processing and Exploitation The gathered information from the second stage is processed into more comprehensible forms in this stage. This can be done by having the foreign languages from foreign intelligence translated, reduction of data and decrypting codes. The processed information is then fully exploited before it can be forwarded to the analysts as intelligence ready for analysis (FBI, 2014; Fox, 2013; National Research Council, 2011). Production and Analysis Basic information is turned into finished intelligence in this stage. Analysts work together with specialists in order to determine whether the processed information is relevant, reliable or valid. The collected data that may be contradictory or fragmentary is usually integrated and 11 INTELLIGENCE SHARING STRATEGY Theodore Proia evaluated. Analysis of all gathered data is done and intelligence products are prepared. The products may include single source reports that are developed fast, reports that are event oriented, the all source long term and studies of intelligence. The State Department's Bureau of Intelligence and Research, the Defense Intelligence Agency and the Central Intelligence Agency can all perform an exclusive all-source intelligence analysis. It is a very thorough assessment and evaluation of the gathered information (Pfeifer, 2018; FBI, 2014). Dissemination This is the stage where the finished intelligence is distributed. Distribution of the products can be done in a number of forms depending on the decision maker's reporting necessities and their needs. An organization or community of intelligence handles the establishment of the several types of intelligence in relation to urgency levels (FBI, 2014). Feedback After the decision maker goes through the intelligence products, requirements are revised and issued then feedback is received thus closing the intelligence cycle loop (FBI, 2014). Policies The strategy has a number of policies that guide operations within the agency (FBI, 2014; National Research Council, 2011). To begin with, there is the enforcement of counterterrorism through efficient sharing of information or intelligence. Counterterrorism involves the identification, understanding, monitoring, and disruption of national or foreign participants of terrorism or terror-related activities that may bring harm to people, allies or interests of the United States of America. This can only be possible with effective information sharing within or among the agencies. The second policy is the forming of an agile work team. The promotion of an agile culture ensures that risks are effectively managed. Any loopholes in the processes and 12 INTELLIGENCE SHARING STRATEGY Theodore Proia policies can take care of properly. Redundancies and gaps in the agency can also be appropriately reengineered. The third policy is the proper use of technology to improve intelligence sharing. Improvements in information technology management, services, network, infrastructure, and application have to be made for the creation of a conducive environment that motivates improvement capacities. In addition, to ensure agility in a landscape that is experiencing constant technological changes, innovative solutions ought to be deployed. Technological and scientific innovations should be encouraged in the agency's workforce. Another policy is the recruitment of a talented and ethical workforce. This can be done by making transformations in the hiring and recruitment process. The transformations will ensure that skill gaps, diversity and leadership are emphasized in order to have a diverse and functional workforce. The excellence and ethical culture are to be consistently promoted in all the levels of the organization so as to achieve adherence to the organization's core values and improve open and honest communication. The focus on a talented workforce ensures that performance in the organization is done on a highly skilled level hence better results. Forming and strengthening partnership for the enrichment of intelligence is a policy in the strategy (Fox, 2013; National Research Council, 2011). Partners, in this case, mainly consist of groups or elements that work to protect the security interests of the United States. The elements include allies, federal departments and agencies, United States military, security services and foreign intelligence, together with tribal governments, state, local and private sector entities (Pfeifer, 2018). The partners have several positive impacts on the strategy and agency as a whole. For instance, they offer expertise, perspective, access, capabilities and they multiply forces which impacts greatly on the general achievement of the mission and enrich the agency's intelligence. Strengthening of the partnerships can be done though; the deepening of 13 INTELLIGENCE SHARING STRATEGY Theodore Proia collaboration for the enhancement of understanding of the partners so as to efficiently make informed decisions and enabled actions, an increment in the responsibility that is shared and make incorporations of insights from all partners for the advancement of intelligence, and the development of an enterprise approach for partnership engagement in order to facilitate outreach that is integrated and coordinated (FBI, 2014; ODNI, 2014). Incorporation of intelligence in all activities of the agency is among the policies of the strategy. This means that intelligence is used in support of all the processes involved in decision making. Intelligence application can be done through strategic intelligence and anticipatory intelligence. Strategic intelligence can be described as the process and product of knowledge, understanding and deep context development for the support of decision making in relation to national security (National Research Council, 2011; FBI, 2014; ODNI, 2014). It sees the providence of intelligence on crucial issues for the enrichment of understanding and eases the decision-making process. For strategic intelligence to work best, comprehension of the strategic environment has to be deepened for the achievement of goals, contextual and in-depth analysis and expertise have to be provided, and foreign intentions, capabilities, and activities ought to be accessed and assessed. Anticipatory intelligence is the sensing, anticipation, and warning of opportunities, trends, threats, and conditions that are emerging and require a prompt shift in emphasis, posture or priorities in national security. The intelligence is as a result of collection and analysis of intelligence in altering situations, events, and trends. This helps in the identification and characterization of imminent or potential discontinuities, substantial opportunities, events that are significant or threats to the interests of the United States. Comprehension of trends, conditions, and issues have to be deepened for the detection of subtle shifts. Capabilities ought to be created for the scanning of the dynamic horizon and discoveries 14 INTELLIGENCE SHARING STRATEGY Theodore Proia made for the assessment of emerging and altering issues and conditions. Capabilities also have to be developed and integrated for the creation of alerts that are timely so as to provide a relevant warning. Legal Entities and Legal Barriers The FBI works under the DOJ, the Department of Justice whose primary function is to prosecute the Law. However, since the formation of the FBI the DOJ, tends to enforce the Law, alongside prosecute the law (FBI, 2014; Cecil, 2017). The FBI, therefore, is mandated to follow all legal protocols and play by the book, despite having a bad history about legal compliance in the past. For instance, during investigations the agency sis not allowed to wiretap suspects without obtaining the prerequisite court orders on the same. Although set to protect individuals from aggressive practices from law enforcement, these legal frameworks sometimes pose as a barrier to investigation and information sharing as protect the culprits at the expense of justice, and the investigative capabilities of the FBI. This is because while attempting to enforce the law, the same law prevents them from carrying out specific actions which help terrorist and criminals evade potential arrest and prosecution (Nobel, 2016). Interagency Coordination The FBI being the principal investigative body in the U.s, encourages interagency coordination through several programs that it heads. This include fusion centers and technologybased coordination where they use advanced technology to understand crime and terror, share information and intelligence as well as create a cross understanding of the nature of the threat posed and by which crime faction (Pfeifer, 2018; FBI, 2014; ODNI, 2014). 15 INTELLIGENCE SHARING STRATEGY Theodore Proia The Terrorists Screening Center The Terrorist Screening Center controls and one unified watchlist on terrorists and terror offering primary resources for law enforcement and screeners. The resources offered by the agency vary in kind and application, and they include; one main point of coordination for the screening of terrorist data. A call center that operates 24/7 which helps screeners and law enforcers gain help with identification of suspects, it also enables participants to obtain a law enforcement response center that is coordinated. Additionally, the terrorist screening center provides an encounter checking and tracking process that is both formal and efficient, provides feedback to all updated entries and finally offers a process for redress. As an interagency coordination center, the TSC offers unclassified identifying information to the Department of State (DOS) Department of Homeland Security (DHS) and also goes through the FBI, National Crime Information Center to provide information to the Tribal, local, and state law enforcing bodies (FBI, 2014; ODNI, 2014). Terrorist Explosive Device Analytical Center (TEDAC) This analytical center offers insight into explosives used by terrorists, which provides law enforcers and bomb units with the knowledge to diffuse similar weapons, while at the same time track the purchase of specific components as used by terrorists in bomb making (FBI, 2014). As an interagency coordination center, it consolidates information from agencies such as the US military, FBI and other intelligence agencies, as well as law enforcers on improvised explosives used by terrorists, especially those of great interest to the American government. Additionally, it offers an opportunity to work with the Bureau of Alcohol, Tobacco and Firearms and the Department of Defense (DOD). 16 INTELLIGENCE SHARING STRATEGY Theodore Proia Biometrics The FBI actively participates in interagency coordination to reach agreements on the standards of data to be employed in the Combined DNA Index System (CODIS) as well as the Next Generation Identification (NGI) project which is quite an integral part of the national biometric initiative under the National Counterterrorism strategy. These data standards include those used by the Terrorist Screening Center. The FBI additionally, provides the technical knowhow and the expertise to analyze and match such suspect data. National Gang Intelligence Center (NGIC) The NGIC is a fusion center that allows for interagency coordination to study and analyses the issues that deal with migration, growth, associations and criminal activity of gangs that pose a major challenge to the societies living in the United States. The FBI as the leader of this interagency coordination hosts the program at its headquarters to offer support to all of its law enforcement partner (National Research Council, 2011). This way, the agencies can understand how to handle the gangs that operate in their specific geographical location, fulfilling the original intention of interagency coordination and intelligence sharing in the process. The National Gang Targeting, Enforcement, and Coordination Center (GangTECC) is also another center that is co-located to the NGIC is equally co-located. The National Crime Information Center This Interagency coordination centers, the NCIC, was established in 1967 as an agency to help identify, terrorist, locate missing persons, recover stolen property and apprehend fugitives. This center provides a computerized index of information on criminal justice that is availed to all nationwide agencies that deal in criminal justice. Agencies signed up to this repository must 17 INTELLIGENCE SHARING STRATEGY Theodore Proia however be authorized to access specific information regarding there are of need. The FBI is equally an agency of this Center (National Research Council, 2011). 18 INTELLIGENCE SHARING STRATEGY Theodore Proia References Cecil, M. (2017). Branding Hoover's FBI: How the Boss's PR Men Sold the Bureau to America. Branding Hoover's FBI: How the Boss's PR Men Sold the Bureau to America, 104(3), 798–799. FBI. (2014). National Inforamation Sharing. Washington D.C: The Federal Bureau of Investigation. Fox, J. (2013). 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