STRATFOR
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October 28, 2010
WIKILEAKS AND THE CULTURE OF CLASSIFICATION
By Scott Stewart
On Friday, Oct. 22, the organization known as WikiLeaks published a cache of 391,832
classified documents on its website. The documents are mostly field reports filed by
U.S. military forces in Iraq from January 2004 to December 2009 (the months of May
2004 and March 2009 are missing). The bulk of the documents (379,565, or about 97
percent) were classified at the secret level, with 204 classified at the lower
confidential level. The remaining 12,062 documents were either unclassified or bore
no classification.
This large batch of documents is believed to have been released by Pfc. Bradley
Manning, who was arrested in May 2010 by the U.S. Army Criminal Investigations
Command and charged with transferring thousands of classified documents onto his
personal computer and then transmitting them to an unauthorized person. Manning is
also alleged to have been the source of the classified information released by
WikiLeaks pertaining to the war in Afghanistan in July 2010.
WikiLeaks released the Iraq war documents, as it did the Afghanistan war documents,
to a number of news outlets for analysis several weeks in advance of their formal
public release. These news organizations included The New York Times, Der Spiegel,
The Guardian and Al Jazeera, each of which released special reports to coincide with
the formal release of the documents Oct. 22.
Due to its investigation of Manning, the U.S. government also had a pretty good idea
of what the material was before it was released and had formed a special task force
to review it for sensitive and potentially damaging information prior to the
release. The Pentagon has denounced the release of the information, which it
considers a crime. It has also demanded the return of its stolen property and warned
that the documents place Iraqis at risk of retaliation and also the lives of U.S.
troops from terrorist groups that are mining the documents for operational
information they can use in planning their attacks.
When one takes a careful look at the classified documents released by WikiLeaks, it
becomes quickly apparent that they contain very few true secrets. Indeed, the main
points being emphasized by Al Jazeera and the other media outlets after all the
intense research they conducted before the public release of the documents seem to
highlight a number of issues that had been well-known and well-chronicled for years.
For example, the press has widely reported that the Iraqi government was torturing
its own people; many civilians were killed during the six years the documents
covered; sectarian death squads were operating inside Iraq; and the Iranian
government was funding Shiite militias. None of this is news. But, when one steps
back from the documents themselves and looks at the larger picture, there are some
interesting issues that have been raised by the release of these documents and the
reaction to their release.
The Documents
The documents released in this WikiLeaks cache were taken from the U.S. government's
Secret Internet Protocol Router Network (SIPRNet), a network used to distribute
classified but not particularly sensitive information. SIPRNet is authorized only
for the transmission of information classified at the secret level and below. It
cannot be used for information classified top secret or more closely guarded
intelligence that is classified at the secret level. The regulations by which
information is classified by the U.S. government are outlined in Executive Order
13526. Under this order, secret is the second-highest level of classification and
applies to information that, if released, would be reasonably expected to cause
serious damage to U.S. national security.
Due to the nature of SIPRNet, most of the information that was downloaded from it
and sent to WikiLeaks consisted of raw field reports from U.S. troops in Iraq. These
reports discussed things units encountered, such as IED attacks, ambushes, the
bodies of murdered civilians, friendly-fire incidents, traffic accidents, etc. For
the most part, the reports contained raw information and not vetted, processed
intelligence. The documents also did not contain information that was the result of
intelligence-collection operations, and therefore did not reveal sensitive
intelligence sources and methods. Although the WikiLeaks material is often compared
to the 1971 release of the Pentagon Papers, there really is very little similarity.
The Pentagon Papers consisted of a top secret-level study completed for the U.S.
secretary of defense and not raw, low-level battlefield reports.
To provide a sense of the material involved in the WikiLeaks release, we will
examine two typical reports. The first, classified at the secret level, is from an
American military police (MP) company reporting that Iraqi police on Oct. 28, 2006,
found the body of a person whose name was redacted in a village who had been
executed. In the other report, also classified at the secret level, we see that on
Jan. 1, 2004, Iraqi police called an American MP unit in Baghdad to report that an
improvised explosive device (IED) had detonated and that there was another
suspicious object found at the scene. The MP unit responded, confirmed the presence
of the suspicious object and then called an explosive ordnance disposal unit, which
came to the site and destroyed the second IED. Now, while it may have been justified
to classify such reports at the secret level at the time they were written to
protect information pertaining to military operations, clearly, the release of these
two reports in October 2010 has not caused any serious damage to U.S. national
security.
Another factor to consider when reading raw information from the field is that,
while they offer a degree of granular detail that cannot be found in higher-level
intelligence analysis, they can often be misleading or otherwise erroneous. As
anyone who has ever interviewed a witness can tell you, in a stressful situation
people often miss or misinterpret important factual details. That's just how most
people are wired. This situation can be compounded when a witness is placed in a
completely alien culture. This is not to say that all these reports are flawed, but
just to note that raw information must often be double-checked and vetted before it
can be used to create a reliable estimate of the situation on the battlefield.
Clearly, the readers of these reports released by WikiLeaks now do not have the
ability to conduct that type of follow-up.
Few True Secrets
By saying there are very few true secrets in the cache of documents released by
WikiLeaks, we mean things that would cause serious damage to national security. And
no, we are not about to point out the things that we believe could be truly
damaging. However, it is important to understand up front that something that causes
embarrassment and discomfort to a particular administration or agency does not
necessarily damage national security.
As to the charges that the documents are being mined by militant groups for
information that can be used in attacks against U.S. troops deployed overseas, this
is undoubtedly true. It would be foolish for the Taliban, the Islamic State of Iraq
(ISI) and other militant groups not to read the documents and attempt to benefit
from them. However, there are very few things noted in these reports pertaining to
the tactics, techniques and procedures (TTP) used by U.S. forces that could not be
learned by simply observing combat operations -- and the Taliban and ISI have been
carefully studying U.S. TTP every hour of every day for many years now. These
documents are far less valuable than years of careful, direct observation and
regular first-hand interaction.
Frankly, combatants who have been intensely watching U.S. and coalition forces and
engaging them in combat for the better part of a decade are not very likely to learn
much from dated American after-action reports. The insurgents and sectarian groups
in Iraq own the human terrain; they know who U.S. troops are meeting with, when they
meet them and where. There is very little that this level of reporting is going to
reveal to them that they could not already have learned via observation. Remember,
these reports do not deal with highly classified human-intelligence or
technical-intelligence operations.
This is not to say that the alleged actions of Manning are somehow justified. From
the statements released in connection with the case by the government, Manning knew
the information he was downloading was classified and needed to be protected. He
also appeared to know that his actions were illegal and could get him in trouble. He
deserves to face the legal consequences of his actions.
This is also not a justification for the actions of WikiLeaks and the media outlets
that are exploiting and profiting from the release of this information. What we are
saying is that the hype surrounding the release is just that. There were a lot of
classified documents released, but very few of them contained information that would
truly shed new light on the actions of U.S. troops in Iraq or their allies or damage
U.S. national security. While the amount of information released in this case was
huge, it was far less damaging than the information released by convicted spies such
as Robert Hanssen and Aldrich Ames -- information that crippled sensitive
intelligence operations and resulted in the execution or imprisonment of extremely
valuable human intelligence sources.
Culture of Classification
Perhaps one of the most interesting facets of the WikiLeaks case is that it
highlights the culture of classification that is so pervasive inside the U.S.
government. Only 204 of the 391,832 documents were classified at the confidential
level, while 379,565 of them were classified at the secret level. This demonstrates
the propensity of the U.S. government culture to classify documents at the highest
possible classification rather than at the lowest level really required to protect
that information. In this culture, higher is better.
Furthermore, while much of this material may have been somewhat sensitive at the
time it was reported, most of that sensitivity has been lost over time, and many of
the documents, like the two reports referenced above, no longer need to be
classified. Executive Order 13526 provides the ability for classifying agencies to
set dates for materials to be declassified. Indeed, according to the executive
order, a date for declassification is supposed to be set every time a document is
classified. But, in practice, such declassification provisions are rarely used and
most people just expect the documents to remain classified for the entire authorized
period, which is 10 years in most cases and 25 years when dealing with sensitive
topics such as intelligence sources and methods or nuclear weapons. In the culture
of classification, longer is also seen as better.
This culture tends to create so much classified material that stays classified for
so long that it becomes very difficult for government employees and security
managers to determine what is really sensitive and what truly needs to be protected.
There is certainly a lot of very sensitive information that needs to be carefully
guarded, but not everything is a secret. This culture also tends to reinforce the
belief among government employees that knowledge is power and that one can become
powerful by having access to information and denying that access to others. And this
belief can often contribute to the bureaucratic jealously that results in the
failure to share intelligence -- a practice that was criticized so heavily in the
9/11 Commission Report.
It has been very interesting to watch the reaction to the WikiLeaks case by those
who are a part of the culture of classification. Some U.S. government agencies, such
as the FBI, have bridled under the post-9/11 mandates to share their information
more widely and have been trying to scale back the practice. As anyone who has dealt
with the FBI can attest, they tend to be a semi-permeable membrane when it comes to
the flow of information. For the bureau, intelligence flows only one way -- in. The
FBI is certainly not alone. There are many organizations that are very hesitant to
share information with other government agencies, even when those agencies have a
legitimate need to know. The WikiLeaks cases have provided such people a
justification to continue to stovepipe information.
In addition to the glaring personnel security issues regarding Manning's access to
classified information systems, these cases are in large part the result of a
classified information system overloaded with vast quantities of information that
simply does not need to be protected at the secret level. And, ironically,
overloading the system in such a way actually weakens the information-protection
process by making it difficult to determine which information truly needs to be
protected. Instead of seeking to weed out the over-classified material and
concentrate on protecting the truly sensitive information, the culture of
classification reacts by using the WikiLeaks cases as justification for continuing
to classify information at the highest possible levels and for sharing the
intelligence it generates with fewer people. The ultimate irony is that the
WikiLeaks cases will help strengthen and perpetuate the broken system that helped
lead to the disclosures in the first place.
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