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UNITED STATES INTELLIGENCE COMMUNITY
INFORMATION SHARING STRATEGYInformation Sharing Strategy
FEBRUARY 22, 2008OFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
TAbLE OF CONTENTS
Message from the Director of National Intelligence...................................................2
Message from the Associate Director of National Intelligence...................................2
Introduction...................................................................................................................3
Challenging New Environment....................................................................................5
Information Sharing Strategy.......................................................................................9
Implementing Our Strategy........................................................................................15
Appendix - List of Acronyms......................................................................................20
1
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYOFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
MESSAGE FROM THE DIRECTOR OF
NATIONAL INTELLIGENCE
This is an extrThis is an extr emely dynamic time for the Intelligence Community and we have the privilege to lead its This is an extr
transformation. With this rtransformation. With this r esponsibility , I made information sharing a top priority in our strategic agenda , we made information sharing a top priority in our strategic agenda
for change. Information sharing must imprfor change. Information sharing must impr ove since it is central to our ability to anticipate and deter the ill ove since it is central to our ability to anticipate and deter the
intentions of our Nation’ill intentions of our Nation’ s adversaries. Imprs adversaries. Impr oving information sharing will bring about true all-sour ce analysis ce
and deliver timelyanalysis and deliver , objective, and actionable intelligence to our senior decision-makers, war fitimely, objective, and actionable intelligence to our senior decision makers, ghters, and war fghters,
defenders of the homeland. This strategy—by detailing information sharing strategic keystones, goals, and defenders of the homeland. This strategy—by detailing information sharing strategic keystones, goals,
and objectives—prand objectives—pr ovides vital dirovides vital dir ection to our efection to our ef forts to efforts to ef fect these changes. Tfect these changes. T ogetherogether , we must chal-, we must chal-and objectives—prection to our efforts to efogether
lenge the status quo of a “need to know” culturlenge the status quo of a “need-to-know” cultur e and move to one of a “r esponsibility to pr ovide” mindset.
Implementing this strategy will enable intelligence entities to act as stewar ds of intelligence data and take
advantage of every opportunity to shar e information that can impr ove the security of our Nation.
J. M. McConnell
Dir Director of National Intelligence
MESSAGE FROM THE INTELLIGENCE COMMUNITY

INFORMATION SHARING EXECUTIVE
Information sharing is a principal component of the DNI’s strategy for improving the Intelligence Commu-
nity’s ability to overcome the new challenging threat environment that we face as a Nation. This document nity’nity’come the new challenging threat envireat envir
outlines a forward-leaning information sharing strategy to enhance our capability to operate as a unifi ed, d-leaning information sharing strategy to enhance our capability to operate as a unifed,
integrated intelligence enterprise. The information sharing strategy is focused on developing a “respon-
sibility to provide” culture in which we unlock intelligence data from a fragmented information technology
infrastructure spanning multiple intelligence agencies and make it readily discoverable and accessible
from the earliest point at which an analyst can add value. This new information sharing model will rely on fr
attribute-based access and tagged data with security built-in to create a trusted environment for collabora-eate a trusted envireate a trusted environment for collabora-onment for collabora-
tion among intelligence professionals to share their expertise and knowledge. Moreover, we should reiterate
our commitment to develop a risk management approach where we carefully contemplate anticipated
benefi ts and potential costs, ensuring mission success and protection of privacy, civil liberties, and sources benefts and potential costs, ensuring mission success and pr
and methods. As we embark on this challenging endeavor, I look forward to working collaboratively with , we look forwar
you to implement this strategy’s information sharing strategic goals and objectives in a manner that benefi ts s information sharing strategic goals and objectives in a manner that benefts ts
the Intelligence Community as one enterprise.
Dale Meyerroseose
Associate Director of National Intelligence and Chief Information Offi cerAssociate DirAssociate Director of National Intelligence and Chief Information Offcer cer
Intelligence Community Information Sharing Executive
1 12
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYINTRODUCTION
OFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
INTRODUCTION
The need to share information became an imperative to protect our Nation in the aftermath of the 9/11
attacks on our homeland. The Intelligence Community’s “need-to-know” culture, a necessity during
the Cold War, is now a handicap that threatens our ability to uncover, respond, and protect against
terrorism and other asymmetric threats. Each intelligence agency has its own
networks and data repositories that make it very diffcult to piece together
facts and suppositions that, in the aggregate, could provide warning of the
“I’ve asked [Director McConnell] to intentions of our adversaries. The inability or unwillingness to share informa-
tion was recognized as an Intelligence Community weakness by both the 9/11
improve information sharing within the Commission and the Weapons of Mass Destruction (WMD) Commission. The
President and the Congress have mandated that the Intelligence Community intelligence community and with offcials
create a more integrated enterprise where information is routinely shared.
at all levels of our government, so every- Since these mandates were issued, progress has been made in information
sharing, realized through the stand up of the National Counterterrorism Center
one responsible for the security of our (NCTC), the Information Sharing Environment (ISE), and related partnership
efforts. These endeavors, though proving to be excellent in facilitating greater communities has the intelligence they
information sharing, are the “tip of the iceberg” and continued focus on “ac-
need to do their jobs.” celerating information sharing” is needed. Simultaneously, consumers must
protect the information made available to them.
– President George W. bush
Recognizing the very real and profound necessity to improve information
sharing, the Director of National Intelligence (DNI) has made accelerating and
improving Intelligence Community information sharing one of his top priorities.
The DNI has called on the Intelligence Community to transform its culture to one where the “responsi-
bility to provide” information is a core tenet.
A central principle is the recognition that information sharing is a behavior and not a technology. In the
Intelligence Community, information sharing behavior is the act of exchanging intelligence informa-
tion between collectors, analysts, and end users in order to improve national and homeland security.
Information providers must make information accessible, available, and discoverable at the earliest
point possible.
3
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYOFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
While technical improvements can enable information sharing, technical solutions alone are not
enough. The goal is to transform the Community in a way that results in much greater and more ef-
fective communication between the participants in the national security community – communication
that improves the quality, applicability, and usage of the results of the intelligence process.
This document lays out a strategy to establish this new culture and to share information better, both
among those whose job it is to provide intelligence and with those who need intelligence to perform
their missions—i.e., policy makers, war fghters, defenders of the homeland, and the offcials who
enforce our laws. Time is of the essence. Improvements must be made rapidly to build on recent
progress and improve our ability to thwart the plans of our enemies and protect our values, people,
institutions, and assets. This document outlines:
n Challenging New Environment. This section shows that a profound mandate for change exists:
(1) Externally, new and evolving threats must be addressed to ensure the Nation’s security; (2)
Internally, the President intends for the DNI to create a more integrated and collaborative enterprise.
Here we also examine the need to manage risk, considering both the need to satisfy national secu-
rity and mission requirements and the need to protect against unauthorized disclosure of sensitive
information that could jeopardize sources and methods, endanger privacy and civil liberties, or
reveal our intentions to adversaries.
n Information Sharing Strategy. This section communicates our information sharing vision and out-
lines its key elements, describes the envisioned outcomes, and communicates our strategic intent
in a clear and succinct manner. The strategic keystones describe the principles around which we
have designed our strategy and are those that will be adhered to as the information sharing model
evolves in the Intelligence Community. Finally, the strategic goals and objectives are defned to
guide information sharing efforts moving forward. The goals articulate the outcomes to be achieved
over the long term and the objectives are the discrete actions to be taken to attain their respective
goals.
n Implementing Our Strategy. This section discusses challenges to overcome in order to improve in-
formation sharing and how the use of fve building blocks— governance, policy, technology, culture,
and economics—can guide efforts to overcome those challenges. It then describes our forthcom-
ing implementation roadmap and outlines the immediate tactical plan mapped to the 500 Day Plan.
Also, we discuss the role of the Intelligence Community Information Sharing Steering Committee.
Finally, alignment to key information sharing initiatives is identifed and we reiterate our commitment
to continue our collaboration with them.

4
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYOFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
CHALLENGING NEW ENVIRONMENT
Mandate for change
Information sharing is a key element in the Intelligence Community’s transformation to provide better
support for our Nation’s protection. The major factors driving the need for change are the changing
threat environment, new national and homeland security customers, and emerging threats that require
synthesizing intelligence from a greater variety of sources. These key factors infuence the future direc-
tion of information sharing in the Intelligence Community and will affect the modus operandi of the intel-
ligence apparatus in the United States.
the new and evolving threat
The tragic events of September 11, 2001, demonstrated that the United States needed greater integra-
tion across the Intelligence Community and improved information sharing to respond to evolving threats
and to support new homeland security customers. The new threat environment we face is dynamic: The
players and their motivations and methods emerge and evolve rapidly. Advances in technology are
accelerating and are spreading through globalization. Commercial products featuring state-of-the-art
technology are available globally at favorable prices. Our adversaries achieve technological advan-
tage through the rapid assimilation and adaptation of commercial information and telecommunication
products. They freely communicate, obtain training, share information on tactics, gather intelligence on
potential targets, spread propaganda, and proselytize. In this post-9/11 world, intelligence must move
faster and leverage all sources of intelligence information.
5
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYOFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
iMperatives to transforM the intelligence coMMunity
Since September 11, 2001, the President, the Congress, independent commissions, and think tanks
have placed greater emphasis on transforming the Intelligence Community to address the new threat
environment. Paramount to that effort is the need for greater information sharing within the Intelligence
Community in support of national policy makers, the military, state and local law enforcement, homeland
security, and our allies.
n Intelligence Reform and Terrorism Prevention Act of 2004 (IRTPA): Requires the Director of National
Intelligence (DNI) to ensure maximum availability of and access to intelligence information within the
Intelligence Community consistent with national security requirements. The statute also calls for pro-
tecting sources and methods in the context of maximizing the dissemination of intelligence informa-
tion following DNI-established guidelines for classifcation, retrieval (in the form when initially gathered
through fnished products), and writing products at the lowest classifcation possible to support
customers.
n The 9/11 Commission Report: Emphasizes the need to change the mindset from “need-to-know”
to “need to share.” Moreover, it places the DNI as the principal change agent in creating a culture
within the Intelligence Community focused on data “stewardship” rather than data “ownership.” The
9/11 Commission challenges the concepts of “originator controlled” (ORCON) adopted by collectors,
which inhibits information dissemination and sharing and creates diffused information ownership and
inconsistent access standards.
n Executive Orders (13311, 13356, 13388, and others): Direct that agencies be held accountable for
sharing information and promptly grant access to their terrorism information to other agencies with
counterterrorism functions, and in conducting these activities, protect the freedom, information pri-
vacy, and other legal rights of Americans.
n Commission on the Intelligence Capabilities of the United States Regarding Weapons of Mass De-
struction (WMD Report): Provides multiple recommendations endorsed by the President to improve
information sharing beyond those outlined in the IRTPA. The WMD Report calls for the establishment
of a Chief Information Management Offcer responsible for information sharing, information security,
and information technology. The Report asserts that the risk of not sharing should be balanced with
the need to protect classifed sources and methods. The Commissioners also recommend improve-
ments related to a networked environment, including identity management with attribute-based ac-
cess, user authorization and audits, encryption of stored data, and universal discovery. Further, they
recommend uniform information sharing policy, practices, procedures, and rules for accessing “U.S.
persons” information. Finally, the Commissioners recommend simplifed classifcation rules and tag-
ging data for security and content to ease discovery and retrieval.
6
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYOFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
an integrated intelligence enterprise
In today’s dynamic environment, it is imperative that all participants exchange information expeditiously
and precisely. Intelligence Community personnel need to understand where and why information is
needed. Analysts and collectors need to be able to piece fragments of information together from all
intelligence sources. Intelligence consumers need to interact with the Intelligence Community to focus
intelligence on the specifc problems at hand. Moreover, in today’s environment the traditional lines
between foreign and domestic, strategic and tactical, intelligence and operations, and customer and
producer are blurring, creating an imperative to improve integration between National and Departmen-
tal intelligence programs. Meeting these needs requires development of a culture that values sharing
information with those who need it, and providing them with the training, policies, laws, processes, and
information technologies necessary to distribute their knowledge.

An integrated intelligence enterprise promises an environment to counter the threats we currently face,
to adapt rapidly to these threats as they change over time, and to address new threats as they emerge.
The information component of an integrated enterprise promises development of better and more timely
intelligence. Intelligence Community participants shall have access to all appropriate information that
they are authorized to see—no matter where it is in the intelligence information life cycle—as well as
the tools that they need to make use of the information. Automation will enhance human performance,
scouring information streams and repositories to uncover information more effciently than humans can
and discovering, fltering, and delivering the knowledge that users need while guarding against informa-
tion overload. The members of the Intelligence Community and its customers will be able to fnd and
meaningfully engage each other. A risk management approach will protect (1) sources and methods as
well as sensitive information from unauthorized disclosure; (2) information and infrastructure from being
compromised, damaged, destroyed, or lost whether it be by attack, error, or negligence; and (3) privacy
and civil liberties of U.S. persons. The President also has called for the creation of an integrated intel-
ligence enterprise.
7
INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGYOFFICE OF THE DIRECTOR OF NATIONAL INTELLIGENCE
Managing risk – Mission effectiveness and inforMation security
One of the key challenges moving forward with improved information sharing will be managing
risk – appropriately considering the importance of both mission effectiveness and information protection.
There exists a “dynamic tension” in our culture between the benefts of making information available and the
risk that unauthorized disclosure of sensitive information could jeopardize sources and methods, endanger
privacy and civil liberties, or reveal our intentions to adversaries.
A new culture of collaboration and risk management will require that people and organizations understand and
trust how their partners manage risk. We will need a uniform trust model across the Intelligence Community.
Since the National Security Act was signed in 1947, the U.S. Intelligence Community has worked under a
“need-to-know” mindset where protection of sources and methods was foremost. This protective mindset
was based primarily on two factors: (1) the need to minimize the risk of inadvertent disclosure of sensitive
information to the “wrong hands,” and (2) to protect the sources and methods to minimize any compro-
mises in clandestine or sensitive technical collection capabilities or analytic techniques.
In today’s environment, the risks associated with not sharing can lead to missing clues of an attack, cost
lives, and endanger our Nation’s security. This new environment requires the Intelligence Community to
move to a “responsibility to provide” culture to ensure all members of the Community can retrieve the infor-
mation they need and effectively support intelligence customers. The “responsibility to provide” culture is
predicated on managing risks associated with mission effectiveness and unauthorized disclosure of
sensitive information.
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INTELLIGENCE COMMUNITY INFORMATION SHARING STRATEGY

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