Amy B. Zegart - Eyes on Spies: Congress and the United States Intelligence Community

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	The Hoover Institution gratefully acknowledges the following individuals and foundations for their significant support of the KORET-TAUBE TASK FORCE ON NATIONAL SECURITY AND LAW
Koret Foundation
Tad and Dianne Taube Taube Family Foundation
James J. Carroll III Jean Perkins Foundation

The Hoover Institution on War, Revolution and Peace, founded at Stanford University in 1919 by Herbert Hoover, who went on to become the thirty-first president of the United States, is an interdisciplinary research center for advanced study on domestic and international affairs. The views expressed in its publications are entirely those of the authors and do not necessarily reflect the views of the staff, officers, or Board of Overseers of the Hoover Institution.

www.hoover.org

Hoover Institution Press Publication No. 603

Hoover Institution at Leland Stanford Junior University,

Stanford, California, 94305-6010

Copyright 2011 by the Board of Trustees of the

Leland Stanford Junior University

All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without written permission of the publisher and copyright holders.

Hoover Institution Press assumes no responsibility for the persistence or accuracy of URLs for external or third-party Internet websites referred to in this publication, and does not guarantee that any content on such websites is, or will remain, accurate or appropriate.

First printing 2011

Library of Congress Cataloging-in-Publication Data

Zegart, Amy B., 1967

Eyes on spies : Congress and the United States intelligence community / by Amy B. Zegart.

p. cm. (Hoover Institution Press publication ; no. 603)

Includes bibliographical references and index.

ISBN 978-0-8179-1284-0 (cloth : alk. paper)

ISBN 978-0-8179-1286-4 (e-book)

1. Intelligence serviceUnited States. 2. Legislative oversightUnited States. I. Title.

JK468.I6Z415 2011

155.4'124dc23 2011031443

For Craig

CONTENTS

Introduction

What Does Good Oversight Look Like, Anyway?

Goldilocks and the Intelligence Oversight Literature

Policemen, Firefighters, and Spooks: How Oversight Varies Across Policy Domains

(with Julie Quinn)

Oversight Weapons Gone Weak: Expertise and Budgetary Authority

Conclusion

LIST OF TABLES AND FIGURES

Median ADA Scores for House Intelligence Committee Democrats vs. House Democrats Overall, 19892006

Median ADA Scores for House Intelligence Committee Republicans vs. House Republicans Overall, 19892006

Median ADA Scores for Senate Intelligence Committee Democrats vs. Senate Democrats Overall, 19892006

Median ADA Scores for Senate Intelligence Committee Republicans vs. Senate Republicans Overall, 19892006

Legislative Activity Levels of Senate Intelligence vs. Other Policy Committees, 1985, 1990, 1995, 2000, and 2005

Percent of Total Senate Bills Considered by Committees, 1985, 1990, 1995, 2000, and 2005

Senate Select Committee on Intelligence Consistently Holds Fewer Hearings than Other Senate Committees, 19852005

House Permanent Select Committee on Intelligence Consistently Holds Fewer Hearings than Other House Committees, 19852005

Foreign Affairs Interest Groups are Significantly Less Prevalent than Other Interest Group Types, 2008

Percent of Lobbyists by Industry, 19982008

Percent of Lobby Spending by Industry, 19982008

Earmark Percent of Intelligence vs. Other Budgets, FY 2008

Decline in Movers and Shakers Serving on Intelligence Committees, 19772007

Percent of Long-Termers Serving on Senate Banking, Armed Services, and Intelligence Committees, 19752008

House Committee Staff Levels, 19772007

Senate Committee Staff Levels, 19772007

Senate Appropriations Subcommittee Budget Workload, FY 2010

Divided and Unified Government Since 9/11

ACKNOWLEDGMENTS

T HE SEED OF THIS BOOK WAS PLANTED IN 2007, when the Senate Select Committee on Intelligence invited me to testify about weaknesses in intelligence oversight. It was an unusual effort by a congressional committee to examine its own flaws publicly, with the aim of generating both ideas and momentum for reform. I would like to thank Chairman John D. Rockefeller, IV (D-WV), Vice Chairman Christopher Kit Bond (R-MO), members of the committee, and Ken Johnson and the rest of the committee staff for tackling these issues head-on and pushing me to think about them more. Four years later, I still have oversight on the brain.

I am indebted to John Raisian, David Brady, and Peter Berkowitz for inviting me to present the first parts of this project to the Koret-Taube Task Force on National Security and Law at the Hoover Institution and for making this book possible. Thanks also to task force members Ken Anderson, Philip Bobbitt, Jack Goldsmith, Steve Krasner, Jessica Stern, Matthew Waxman, and Ben Wittes; and Joel Aberbach, E. Scott Adler, Matt Baum, Al Carnesale, Bobby Chesney, Fred Kaiser, Mark Kleiman, Kris Kasianovitz, David Mayhew, Eric Patashnik, Mark Peterson, Kal Raustiala, Andy Sabl, and Steve Teles for data suggestions and comments on earlier drafts. The improvements are theirs, but any remaining errors are all mine.

Without a small army of research assistants, I would still be analyzing twenty-five thousand interest groups and thirty years of congressional hearings. Thanks to Matt Clawson, Ravi Doshi, Katie Frost, Torey McMurdo, Greg Midgette, Jaclyn Nelson, Russell Wald, Alec Wilson, and especially Melinda McVay, who spent far more time mastering the intricacies of congressional data coding than any human being should. Thanks also to Julie Quinn for managing the army and co-authoring chapter 4, and to UCLAs Burkle Center for International Relations and the Center for American Politics and Public Policy for providing seed funding.

In the course of this and other intelligence projects, I have interviewed more than eighty intelligence officials, legislators, and staff. Most have asked to remain anonymous so that they could speak more freely. I am indebted to them all.

Thanks to my childrenKate, Jack, and Alexanderfor launching the best covert operation imaginable: sneaking into my office every day after school (from different directions, seemingly undetected by the babysitter) to chat about their days. I am grateful to my parents, Shelly and Kenny Zegart, for their steadfast support through three cities, kids, and books. Thanks also to my grandfather, Judge David Weiss, who knew firsthand the joys and challenges of electoral politics and defied all of my theoretical predictions, serving in the arena with an abiding commitment to the public good. My grandmother, Thelma Weiss, passed away just as this book was going to press, but I smile knowing that she would have said she loved it, regardless of what I actually wrote.

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