Intelligence_ From Secrets to Policy - Mark M. Lowenthal [8]
John VIII-XXXII
It is a nice sentiment, but it overstates and misrepresents what is going on in that building or any other intelligence agency
At the same time, intelligence suffers from a number of potential weaknesses that tend to undercut its function in the eyes of policy makers. Not all of these weaknesses are present at all times, and sometimes none is present. They still represent potential pitfalls.
First, a certain amount of intelligence analysis may be no more sophisticated than current conventional wisdom on a given issue. Conventional wisdom is usually—and sometimes mistakenly—dismissed out of hand. But policy makers expect more than that, in part justifiably.
Second, analysis can become so dependent on data that it misses important intangibles. For example, a competent analysis of the likelihood that thirteen small and somewhat disunited colonies would be able to break away from British rule in the 1770s would have concluded that defeat was inevitable. After all, Britain was the largest industrial power; it already had trained troops stationed in the colonies; colonial opinion was not united (nor was Britain’s); and Britain could use the Native Americans as an added force, among other reasons. A straightforward political-military analysis would have missed several factors—the strength of British divisiveness, the possibility of help from royalist France—that turned out to be of tremendous importance.
Third, mirror imaging, or assuming that other states or individuals will act just the way a particular country or person does, can undermine analysis. The basis of this problem is fairly understandable. Every day people make innumerable judgments—when driving, walking on a crowded street, or interacting with others at home and at the office—about how other people will react and behave. They assume that their behavior and reactions are based on the golden rule. These judgments stem from societal norms and rules, etiquette, and experience. Analysts too easily extend this commonplace thinking to intelligence issues. However, in intelligence it becomes a trap. For example, no U.S. policy maker in 1991 could conceive of Japan’s starting a war with the United States overtly (instead of continuing its advance while bypassing U.S. territories), given the great disparity in the strength of the two nations. In Tokyo. however, those same factors argued compellingly for the necessity of starting war sooner rather than later. The other problem with mirror imaging is that it assumes a certain level of shared rationality. It leaves no room for the irrational actor, an individual or nation whose rationality is based on something different or unfamiliar—for example, suicidal terrorists viewed through the eyes of western culture.
INTELLIGENCE: A WORKING CONCEPT
Intelligence is the process by which specific types of information important to national security are requested, collected, analyzed, and provided to policy makers; the products of that process; the safeguarding of these processes and this information by counterintelligence activities; and the carrying out of operations as requested by lawful authorities.
Fourth, and perhaps most important, policy makers are free to reject or to ignore the intelligence they are offered. They may suffer penalties down the road if their policy has bad outcomes, but policy makers cannot be forced to take heed of intelligence. Thus, they can dispense with intelligence at will, and intelligence officers cannot press their way (or their products) back into the process in such cases.
This host of weaknesses seems to overpower the positive aspects of intelligence. It certainly suggests and underscores the fragility of intelligence within the policy process. How, then, can it be determined whether intelligence matters? The best way, at least retrospectively, is to ask: Would policy makers have made different choices with or without a given