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Topic: Intel Matters (Read 73870 times)
Stratfor: Why Torture is Counterproductive
Reply #400 on:
December 11, 2014, 05:25:23 PM »
Why Torture Is Counterproductive
December 10, 2014 | 02:13 GMT Print Text Size
Torture is Counterproductive
Military police process incoming Taliban and al Qaeda detainees at Guantanamo Bay's Camp X-Ray in Cuba in 2002. (Petty Officer 1st class Shane T. McCoy/U.S. Navy/Getty Images)
In the wake of the 9/11 attacks, the U.S. government had very little intelligence on al Qaeda's plans and capabilities. There was a tremendous amount of fear that the strikes were only the first of many large-scale attacks to come, and reports even circulated that the group had nuclear weapons planted in U.S. cities. The public as well as government officials were in shock and caught off guard. In hindsight, it is easy to understand how extreme fear of the unknown compelled some elements of the intelligence community to embrace the idea that harsh interrogation measures were required to understand the urgent and nebulous threat the nation was facing.
Indeed, the sense of fear and panic was significant enough to cause personnel in some agencies to override the moral objections associated with extreme interrogation tactics, which is also to ignore the widely regarded fact that torture does not produce reliable intelligence. Yet, the Senate report released Dec. 9 makes it clear that, from a purely pragmatic point of view, the results of the United States' enhanced interrogation program were negligible, and as the final analysis shows, the morally objectionable means of this program were not justified by its paltry results.
The U.S. Senate Intelligence Committee report highlights and describes certain techniques in great detail — including the use of stress positions, sleep deprivation, slapping, shaking, water boarding and induced hypothermia — but does not reveal any techniques that were not already publicly known. The CIA began implementing these techniques, deemed torture by opponents and enhanced or harsh interrogation techniques by supporters, in 2002. The aim was to improve the chances of acquiring time-sensitive information from high value-targets that would be critical to national security. The thinking of the time was to employ more robust methods to uncover impending catastrophic attacks against U.S. citizens, the "ticking time bomb scenario" as it is commonly referred to.
In 2004, the revelations of prisoner abuse at the Abu Ghraib prison in Iraq at the hands of U.S. military personnel garnered widespread coverage by domestic and international media. Images of military police harassing and violating prisoners were circulated, sparking significant controversy over whether the U.S. government employed torture against its enemy combatants, a stark violation of human rights for many as well as an infringement of the Geneva Conventions. Though the media focused on the actions of the military police, rather than interrogators, the revelations quickly led to further inquiries and deep scrutiny over the interrogation practices conducted at the prison and across the intelligence community.
Conversation: Putting the CIA Interrogation Report Into Context
The scandal led the Defense Department to quickly tighten its policies on interrogations, while each military branch emphatically trained its personnel on operating in accordance with the Geneva Conventions. However, the CIA continued to use enhanced interrogation techniques, though only for a short period and on relatively few combatants. In January 2009, President Barrack Obama signed an executive order that restricted all U.S. intelligence agencies to conduct interrogations strictly in accordance with the methods described in the U.S. Army Field Manual 2-22.3, a publication that is readily available to the public.
Whether the enhanced interrogation techniques implemented by the CIA equate to torture still remains a hotly contested issue in the United States. It is true that all the methods detailed in the report are intended to inflict substantial emotional or physical pain on detainees. Aside from the serious ethical concerns surrounding the techniques detailed in the Senate report, the use of torture or any technique designed to inflict some measure of pain or duress upon a detainee makes for a poor, if not counterproductive, strategy in gaining actionable intelligence. The reasons for this include the inherent nature of the interrogation process as well as the inadvertent psychological consequences of torture or harsh techniques on the detainee.
The sole objective of an intelligence-driven interrogation is to acquire actionable information through direct questioning or elicitation of a detainee. In this sense, actionable intelligence is any piece of information, by itself or as a factor in analysis, that military commanders or policymakers can use in making decisions. If an interrogator fails to obtain such information, the sole objective was not achieved, and the process was a failure. Likewise, if the intent of an interrogation was not to gain actionable intelligence, the interrogation becomes something entirely different.
Despite dramatic Hollywood portrayals of the intelligence-gathering process, interrogating a detainee is actually a very simple process. It can be looked at as an interview, though a major difference between an interrogation and an interview is that many subjects are unwilling to provide answers to pertinent questions at first. As a result, the first step in an interrogation is convincing the subject to cooperate. It is this critical phase, which the U.S. Army Field Manual 2-22.3 refers to as an "approach," that often receives the most attention from the public and, sometimes, even from the interrogator.
Setting aside legal and moral considerations, there is a wide variety of conflicting approaches that can be used to encourage a detainee to provide actionable intelligence. It should be noted that not all approaches are necessarily designed to evoke negative feelings in a detainee. In fact, the Field Manual 2-22.3 details several methods designed to do the opposite. The U.S. intelligence community mostly relies on approaches that generate positive feelings within the detainee, such as "emotional love" and "pride and ego up," in addition to incentive-based approaches. Outside of inflicting emotional or physical harm on a detainee, all approaches are simply conversations guided by the interrogator that would lead the detainee to willingly provide information of intelligence value. A prime example of an incentive-based approach convincing a detainee to talk is when the Detroit underwear bomber, Umar Farouk Abdulmutallab, cooperated with U.S. authorities after they brought in two of his family members from Nigeria.
These conversations can take time for an interrogator, however, and often span multiple sessions that are carried out over the course of days, weeks or even years. While the time devoted to garner actionable intelligence can be substantial, the interrogator's chance of successfully completing the objective is slim. The vast majority of detainees who are initially uncooperative will remain so, or at least never become cooperative in full. The necessary time to run approaches and the slim odds of success are critical barriers in an interrogation that seeks to discover imminent attacks against U.S. citizens. It is because of these obstacles — that is, to save time and force cooperation — that interrogators sought to employ enhanced interrogation techniques.
The Limits of Enhanced Interrogations
As a potential source of intelligence, interrogations are one of the least reliable and least timely methods employed by the various intelligence disciplines. While inflicting emotional or physical pain on a subject as an interrogation approach will likely elicit a quick response, those responses are not necessarily truthful or accurate, and thus the interrogation can still be a failure.
Whether looking for information on potential attacks or other, less perishable intelligence, an interrogator can gather actionable intelligence only if the subject is telling the truth and answers the questions to the best of his ability. Even if the subject is cooperating, the information he shares is not always accurate. By virtue of placing the detainee under extreme stress, torture can make it difficult for the detainee to accurately recall information from memory. Detainees may misremember details and will often fabricate information they think will end the interrogation.
All information of intelligence value, particularly any information about an impending attack, is time sensitive. For the vast majority of interrogations, the information acquired can only be as recent as the date when the subject was detained, and it begins losing value immediately. A detainee who has been in detention for years will not have intelligence on a pending attack — even information that is a few days old could very well be useless. The capture of an insurgent or terrorist leader could place any attack plans on hold, or the remaining leaders could redraw them, thus making the detainee's knowledge outdated and less valuable. For this reason, when compared to the numerous other means by which the intelligence community collects intelligence, an interrogation makes a poor source of intelligence when attempting to thwart attacks.
To understand why torture provides little benefit over approaches permissible under Field Manual 2-22.3, it is important to consider the perspective of the interrogator and the detainee.
Before entering the booth with a detainee, every interrogator is armed with a dossier on his subject and a list of collection requirements — broad, open-ended questions on an array of subjects that policymakers, military commanders or others in the intelligence community may have. Background information about the detainee can range from a complete lack of knowledge to an enormous collection of various intelligence reports that collectively proves the detainee's role within an enemy organization as well as the likely topics on which the detainee will have information. Regardless how much information an intelligence agency has on a detainee, there is always a high degree of uncertainty as to what the detainee actually knows.
Many detainees choose not to cooperate at first. They employ interrogation-resistance strategies of some fashion to avoid divulging pertinent information. These methods vary and are taught and shared by militants inside and out of detention facilities. Even before meeting their interrogator for the first time, most detainees are aware of what information they need to safeguard, often having an expectation of what questions they will be asked during the interrogation.
Sometimes it is obvious when a detainee chooses to remain uncooperative; the detainee may remain completely silent, respond to questions with inappropriate answers or attempt to take charge of the conversation. Even when they appear to be cooperating, the interrogator can never be entirely confident the detainee is responding to questions to the best of his ability or, more important, accurately sharing his information. Fortunately, interrogators are trained in numerous tactics to assess the truthfulness of a detainee's stories, but even when skillfully employed, such techniques do not provide guarantees, nor do they help build cooperation.
There are many reasons for a detainee to resist direct questioning. Whether such reasons are ideological in nature or based on fear of reprisals, a detainee must actively make the decision to provide his interrogator with accurate information. Without the desire, the detainee simply will not respond, regardless of any interrogation approach. Many advocates of enhanced interrogation techniques believe the detainee will choose to provide accurate information to stop the pain.
In order to help an approach, an interrogator must build rapport with the subject. They must develop a relationship where credibility exists in both the interrogator and the detainee. It is only after doing this that an interrogator can accurately assess the truthfulness of a detainee's responses. Rapport helps the interrogator establish a baseline for the detainee and understand his typical behavior and mannerisms, developed through conversations discussing pertinent and non-pertinent matters. Likewise, building rapport helps bolster the credibility of the interrogator. It is particularly helpful when using incentive-based approaches and makes the interrogator's other planned approaches more effective. Using harsh techniques or torture complicates the rapport-building process, making it harder for an interrogator to discern between lies and truth.
Building rapport does not always mean the detainee will develop positive feelings toward the interrogator, and even some approved approaches require developing an uncordial relationship. However, placing the detainee under the stress of extreme emotional or physical pain will halt any relationship building as the detainee focuses on his pain. Because an interrogator is never quite certain of what a detainee knows, the detainee under duress or pain may be subjected to questions he may truthfully not know the answers to. In this situation, a detainee will be pushed to say anything necessary to stop the pain, including lies.
Even if the detainee actually has an answer that would satisfy his interrogator, he can still use resistance techniques. Resisting subjects often provide a detailed response that barely answers a given question. They also provide harmless nuggets of truth in hopes of persuading the interrogators of their full cooperation. Again, having prior intelligence on the detainee and building rapport is crucial to spotting these resistance techniques.
Not all inaccurate information provided by the detainee is necessarily a result of his being uncooperative. When being questioned under duress or pain, a detainee may simply lie to make up for a lack of knowledge. More common, however, is that all people have varying abilities to accurately recollect events, descriptions and conversations. Interrogators, particularly those tasked with gathering information on pending attacks, must strive to obtain the smallest details from the detainee. This can significantly challenge any person's memory, especially someone under extreme stress. Details of a story may become more difficult to remember, and if under extreme stress, the detainee may fabricate a critical detail, even when largely telling the truth, in order to satisfy the interrogator.
While the need to uncover imminent terrorist attacks in the chaos directly after 9/11 was clear, several years of results have made it obvious that using enhanced interrogation techniques is not reliable. Other interrogation approaches, specifically those still permitted by FM 2-22.3, in concert with building a rapport with a detainee, yield far more reliable results. Additionally, using other intelligence-gathering methods under the human intelligence discipline, or methods from other disciplines such as signals intelligence, have proved more productive. The Senate Intelligence Committee's report only confirms this fact, acknowledging what the intelligence community already knows.
Read more: Why Torture Is Counterproductive | Stratfor
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Stratfor in 2009: Torture and the US Intel failure
Reply #401 on:
December 11, 2014, 05:27:53 PM »
Torture and the U.S. Intelligence Failure
April 20, 2009 | 17:47 GMT Print Text Size
Dissecting the Chinese Miracle
By George Friedman
The Obama administration published a series of memoranda on torture issued under the Bush administration. The memoranda, most of which dated from the period after 9/11, authorized measures including depriving prisoners of solid food, having them stand shackled and in uncomfortable positions, leaving them in cold cells with inadequate clothing, slapping their heads and/or abdomens, and telling them that their families might be harmed if they didn't cooperate with their interrogators.
On the scale of human cruelty, these actions do not rise anywhere near the top. At the same time, anyone who thinks that being placed without food in a freezing cell subject to random mild beatings — all while being told that your family might be joining you — isn't agonizing clearly lacks imagination. The treatment of detainees could have been worse. It was terrible nonetheless.
Torture and the Intelligence Gap
But torture is meant to be terrible, and we must judge the torturer in the context of his own desperation. In the wake of 9/11, anyone who wasn't terrified was not in touch with reality. We know several people who now are quite blasé about 9/11. Unfortunately for them, we knew them in the months after, and they were not nearly as composed then as they are now.
Sept. 11 was terrifying for one main reason: We had little idea about al Qaeda's capabilities. It was a very reasonable assumption that other al Qaeda cells were operating in the United States and that any day might bring follow-on attacks. (Especially given the group's reputation for one-two attacks.) We still remember our first flight after 9/11, looking at our fellow passengers, planning what we would do if one of them moved. Every time a passenger visited the lavatory, one could see the tensions soar.
And while Sept. 11 was frightening enough, there were ample fears that al Qaeda had secured a "suitcase bomb" and that a nuclear attack on a major U.S. city could come at any moment. For individuals, such an attack was simply another possibility. We remember staying at a hotel in Washington close to the White House and realizing that we were at ground zero — and imagining what the next moment might be like. For the government, however, the problem was having scraps of intelligence indicating that al Qaeda might have a nuclear weapon, but not having any way of telling whether those scraps had any value. The president and vice president accordingly were continually kept at different locations, and not for any frivolous reason.
This lack of intelligence led directly to the most extreme fears, which in turn led to extreme measures. Washington simply did not know very much about al Qaeda and its capabilities and intentions in the United States. A lack of knowledge forces people to think of worst-case scenarios. In the absence of intelligence to the contrary after 9/11, the only reasonable assumption was that al Qaeda was planning more — and perhaps worse — attacks.
Collecting intelligence rapidly became the highest national priority. Given the genuine and reasonable fears, no action in pursuit of intelligence was out of the question, so long as it promised quick answers. This led to the authorization of torture, among other things. Torture offered a rapid means to accumulate intelligence, or at least — given the time lag on other means — it was something that had to be tried.
Torture and the Moral Question
And this raises the moral question. The United States is a moral project: its Declaration of Independence and Constitution state that. The president takes an oath to preserve, protect and defend the Constitution from all enemies foreign and domestic. The Constitution does not speak to the question of torture of non-citizens, but it implies an abhorrence of rights violations (at least for citizens). But the Declaration of Independence contains the phrase, "a decent respect for the opinions of mankind." This indicates that world opinion matters.
At the same time, the president is sworn to protect the Constitution. In practical terms, this means protecting the physical security of the United States "against all enemies, foreign and domestic." Protecting the principles of the declaration and the Constitution are meaningless without regime preservation and defending the nation.
While this all makes for an interesting seminar in political philosophy, presidents — and others who have taken the same oath — do not have the luxury of the contemplative life. They must act on their oaths, and inaction is an action. Former U.S. President George W. Bush knew that he did not know the threat, and that in order to carry out his oath, he needed very rapidly to find out the threat. He could not know that torture would work, but he clearly did not feel that he had the right to avoid it.
Consider this example. Assume you knew that a certain individual knew the location of a nuclear device planted in an American city. The device would kill hundreds of thousands of Americans, but the individual refused to divulge the information. Would anyone who had sworn the oath have the right not to torture the individual? Torture might or might not work, but either way, would it be moral to protect the individual's rights while allowing hundreds of thousands to die? It would seem that in this case, torture is a moral imperative; the rights of the one with the information cannot transcend the life of a city.
Torture in the Real World
But here is the problem: You would not find yourself in this situation. Knowing a bomb had been planted, knowing who knew that the bomb had been planted, and needing only to apply torture to extract this information is not how the real world works. Post-9/11, the United States knew much less about the extent of the threat from al Qaeda. This hypothetical sort of torture was not the issue.
Discrete information was not needed, but situational awareness. The United States did not know what it needed to know, it did not know who was of value and who wasn't, and it did not know how much time it had. Torture thus was not a precise solution to a specific problem: It became an intelligence-gathering technique. The nature of the problem the United States faced forced it into indiscriminate intelligence gathering. When you don't know what you need to know, you cast a wide net. And when torture is included in the mix, it is cast wide as well. In such a case, you know you will be following many false leads — and when you carry torture with you, you will be torturing people with little to tell you. Moreover, torture applied by anyone other than well-trained, experienced personnel (who are in exceptionally short supply) will only compound these problems, and make the practice less productive.
Defenders of torture frequently seem to believe that the person in custody is known to have valuable information, and that this information must be forced out of him. His possession of the information is proof of his guilt. The problem is that unless you have excellent intelligence to begin with, you will become engaged in developing baseline intelligence, and the person you are torturing may well know nothing at all. Torture thus becomes not only a waste of time and a violation of decency, it actually undermines good intelligence. After a while, scooping up suspects in a dragnet and trying to extract intelligence becomes a substitute for competent intelligence techniques — and can potentially blind the intelligence service. This is especially true as people will tell you what they think you want to hear to make torture stop.
Critics of torture, on the other hand, seem to assume the torture was brutality for the sake of brutality instead of a desperate attempt to get some clarity on what might well have been a catastrophic outcome. The critics also cannot know the extent to which the use of torture actually prevented follow-on attacks. They assume that to the extent that torture was useful, it was not essential; that there were other ways to find out what was needed. In the long run, they might have been correct. But neither they, nor anyone else, had the right to assume in late 2001 that there was a long run. One of the things that wasn't known was how much time there was.
The U.S. Intelligence Failure
The endless argument over torture, the posturing of both critics and defenders, misses the crucial point. The United States turned to torture because it has experienced a massive intelligence failure reaching back a decade. The U.S. intelligence community simply failed to gather sufficient information on al Qaeda's intentions, capability, organization and personnel. The use of torture was not part of a competent intelligence effort, but a response to a massive intelligence failure.
That failure was rooted in a range of miscalculations over time. There was the public belief that the end of the Cold War meant the United States didn't need a major intelligence effort, a point made by the late Sen. Daniel Moynihan. There were the intelligence people who regarded Afghanistan as old news. There was the Torricelli amendment that made recruiting people with ties to terrorist groups illegal without special approval. There were the Middle East experts who could not understand that al Qaeda was fundamentally different from anything seen before. The list of the guilty is endless, and ultimately includes the American people, who always seem to believe that the view of the world as a dangerous place is something made up by contractors and bureaucrats.
Bush was handed an impossible situation on Sept. 11, after just nine months in office. The country demanded protection, and given the intelligence shambles he inherited, he reacted about as well or badly as anyone else might have in the situation. He used the tools he had, and hoped they were good enough.
The problem with torture — as with other exceptional measures — is that it is useful, at best, in extraordinary situations. The problem with all such techniques in the hands of bureaucracies is that the extraordinary in due course becomes the routine, and torture as a desperate stopgap measure becomes a routine part of the intelligence interrogator's tool kit.
At a certain point, the emergency was over. U.S. intelligence had focused itself and had developed an increasingly coherent picture of al Qaeda, with the aid of allied Muslim intelligence agencies, and was able to start taking a toll on al Qaeda. The war had become routinized, and extraordinary measures were no longer essential. But the routinization of the extraordinary is the built-in danger of bureaucracy, and what began as a response to unprecedented dangers became part of the process. Bush had an opportunity to move beyond the emergency. He didn't.
If you know that an individual is loaded with information, torture can be a useful tool. But if you have so much intelligence that you already know enough to identify the individual is loaded with information, then you have come pretty close to winning the intelligence war. That's not when you use torture. That's when you simply point out to the prisoner that, "for you the war is over." You lay out all you already know and how much you know about him. That is as demoralizing as freezing in a cell — and helps your interrogators keep their balance.
U.S. President Barack Obama has handled this issue in the style to which we have become accustomed, and which is as practical a solution as possible. He has published the memos authorizing torture to make this entirely a Bush administration problem while refusing to prosecute anyone associated with torture, keeping the issue from becoming overly divisive. Good politics perhaps, but not something that deals with the fundamental question.
The fundamental question remains unanswered, and may remain unanswered. When a president takes an oath to "preserve, protect and defend the Constitution of the United States," what are the limits on his obligation? We take the oath for granted. But it should be considered carefully by anyone entering this debate, particularly for presidents.
Read more: Torture and the U.S. Intelligence Failure | Stratfor
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POTH: Panel- no penalty for CIA's search of/raid on Feinstein's computers
Reply #402 on:
December 20, 2014, 10:24:53 AM »
WASHINGTON — A panel investigating the Central Intelligence Agency’s search of a computer network used by staff members of the Senate Intelligence Committee who were looking into the C.I.A.’s use of torture will recommend against punishing anyone involved in the episode, according to current and former government officials.
The panel will make that recommendation after the five C.I.A. officials who were singled out by the agency’s inspector general this year for improperly ordering and carrying out the computer searches staunchly defended their actions, saying that they were lawful and in some cases done at the behest of John O. Brennan, the C.I.A. director.
While effectively rejecting the most significant conclusions of the inspector general’s report, the panel, appointed by Mr. Brennan and composed of three C.I.A. officers and two members from outside the agency, is still expected to criticize agency missteps that contributed to the fight with Congress. But its decision not to recommend anyone for disciplinary action is likely to anger members of the Intelligence Committee, who have accused the C.I.A. of trampling on the independence of Congress and interfering with its investigation of agency wrongdoing. The computer searches occurred late last year while the committee was finishing an excoriating report on the agency’s detention and interrogation program.
The computer search raised questions about the separation of powers and caused one of the most public rifts in years between the nation’s intelligence agencies and the Senate oversight panel, which conducts most of its business in secret. It led to an unusually heated and public rebuke by Senator Dianne Feinstein, the California Democrat who is the committee’s chairwoman.
Three C.I.A. technology officers and two lawyers had faced possible punishment. In their defense, some pointed to documents — including notes of a phone call with Mr. Brennan — that they said indicated that the director supported their actions, according to interviews with a half dozen current and former government officials and others briefed on the case.
The panel’s chairman is Evan Bayh, a Democratic former senator from Indiana who served on the Intelligence Committee. Its other outside member is Robert F. Bauer, who served as White House counsel during President Obama’s first term.
The panel’s specific conclusions are still being finalized, and it could be weeks before they present a report to the C.I.A. But officials said that the five agency employees had been informed that the panel would recommend that they not be disciplined.
The results of such investigations, known as accountability boards, are not normally released. But given the public nature of the dispute, it is expected that some of the conclusions will eventually become public.
“The process is ongoing,” said Dean Boyd, the C.I.A. spokesman. “We haven’t seen what it says, so it’s impossible to comment on it.”
When the controversy over the search erupted, Mr. Brennan offered a vigorous defense of his agency. He later apologized after the C.I.A.’s inspector general concluded that the agency had improperly monitored the committee’s activities. The inspector general also found that C.I.A. officers had read the emails of agency investigators and sent a criminal referral to the Justice Department based on false information.
Mr. Brennan has enraged senators by refusing to answer questions posed by the Intelligence Committee about who at the C.I.A. authorized the computer intrusion. Doing so, he said, could compromise the accountability board’s investigation.
“What did he know? When did he know it? What did he order?” said Senator Carl Levin, the Michigan Democrat who is a member of the Intelligence Committee, said in an interview last week. “They haven’t answered those basic questions.”
The computer controversy erupted last December amid a dispute between the C.I.A. and committee Democrats and staff members over the conclusions of the torture report, which was released last week. As it does today, the C.I.A. disputed the report’s findings that brutal interrogation tactics yielded no crucial intelligence to prevent terrorist attacks. During a committee hearing, Senator Mark Udall, Democrat of Colorado, revealed the existence of a previously unknown internal C.I.A. report that he said backed up the committee’s findings.
“If this is true,” Mr. Udall said, “this raises fundamental questions about why a review the C.I.A. conducted internally years ago — and never provided to the committee — is so different from the C.I.A.’s formal response to the committee study.”
By then, agency officials had already suspected that committee investigators had found the internal review, which was ordered in 2009 by Leon E. Panetta, then the C.I.A. director, and has come to be known as the “Panetta review.” Working for years from the basement of a C.I.A. facility in North Virginia, Senate investigators reviewed millions of digital files related to the interrogation program. But the Panetta review was not supposed to be one of them, and agency officials suspected that Senate investigators had somehow gained access to parts of the C.I.A.’s computer network they had been prohibited from searching.
C.I.A. officers searched their logs to see if they had inadvertently given the Panetta review to the Senate. When they determined they had not, officials brought the matter to Mr. Brennan, who authorized what he has called “a limited review” to figure out if Senate staff members had obtained the documents.
The inspector general’s report included details of a conversation last December, when Mr. Brennan called the home of one of the C.I.A. lawyers under investigation. According to two people with knowledge of the inspector general’s findings, the lawyer wrote a memorandum about the conversation that said Mr. Brennan told him he needed to get to the bottom of the matter.
Much of the dispute between the Senate and the C.I.A. revolves around what rules governed the computer system used by Senate investigators as they wrote their report. The C.I.A. made the documents available to the investigators and created a search function that allowed them to locate documents based on key words. The rules for accessing the network were established in a series of memos and letters, not one formal document.
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