National-security journalist Weiner supports an American clandestine espionage service but flays the one that has been in business for the past 60 years. His history of the CIA draws extensively from primary documentation, yielding lively episodes of agents and operations and the reactions to their results by CIA directors and presidents. The title quotes President Dwight Eisenhower's negative opinion of the intelligence organization, a recurrent executive complaint that prompts Weiner's analysis of the CIA's historical problems. He argues that covert action has deflected the CIA from espionage's classic function of ascertaining adversaries' secrets and intentions and, accordingly, populates these pages with covert-action fiascoes (the Bay of Pigs in 1961) and intelligence failures to avert another Pearl Harbor (one reason the CIA was created) such as 9/11. Although critical, Weiner expresses esteem for certain CIA directors, such as Richard Helms. These directors understood espionage basics, and Weiner concludes with the hope that the CIA will get back to them. Thousands of the CIA's annual applicants will seek out an institutional history, and Weiner's ably meets that need. Taylor, Gilbert

Tim Weiner is a reporter for The New York Times. He has written on American intelligence for twenty years, and won the Pulitzer Prize for his work on secret national security programs. He has traveled to Afghanistan and other nations to investigate CIA covert operations firsthand. This is his third book.

Reviewed by David Wise

The CIA is a fat, easy target these days. Under George "slam dunk" Tenet, it failed (along with the FBI) to prevent 9/11, and then it famously and wrongly estimated that Iraq's Saddam Hussein had weapons of mass destruction. Tenet's $4 million memoir to explain these failures merely subjected him to more slings and arrows, soothed only somewhat by all that moola.

Morale plunged under his successor, Porter Goss, who brought a clique of unpopular flunkies from Capitol Hill to Langley. The spies revolted, and Goss had to walk the plank. Now the agency is presided over by Michael Hayden, the same Air Force general who supinely created President Bush's warrantless wiretap program to eavesdrop on Americans despite the Constitution. Given the checkered history of the CIA, it is small wonder that Tim Weiner's Legacy of Ashes is a highly caustic, corrosive study of the beleaguered agency.

But Weiner, a New York Times correspondent who has covered intelligence for years, cannot be accused of kicking the agency when it is down. It is his thesis, amply documented, that the CIA was never up. He paints a devastating portrait of an agency run, during the height of its power in the Cold War years, by Ivy League incompetents, "old Grotonians" who lied to presidents -- an agency that, more often than not, failed to foresee major world events, violated human rights, spied on Americans, plotted assassinations of foreign leaders, and put so much of its energy and resources into bungled covert operations that it failed in its core mission of collecting and analyzing information.

To compare some of the agency's antics revealed in this book to the Keystone Kops is to do violence to the memory of Mack Sennett, who created the slapstick comedies. My personal favorite is an episode in Guatemala in 1994, when the CIA chief of station confronted the American ambassador, Marilyn McAfee, with intelligence, as she recalled, that "I was having an affair with my secretary, whose name was Carol Murphy." The CIA's friends in the Guatemalan military had bugged McAfee's bedroom, Weiner reports, and "recorded her cooing endearments to Murphy. They spread the word that the ambassador was a lesbian." The CIA's "Murphy memo" was widely distributed in Washington. There was only one problem: the ambassador was married, not gay and not sleeping with her secretary. " 'Murphy' was the name of her two-year-old black standard poodle. The bug in her bedroom had recorded her petting her dog."

Forty years earlier, the CIA had overthrown the legally elected government of Guatemala, a covert operation long touted as one of the intelligence agency's grand "successes." It was even called Operation Success. Guatemala was made safe for United Fruit -- talk about banana republics -- but not for democracy. A series of military dictators followed the CIA coup, with death squads and repression in which perhaps 200,000 Guatemalans perished.

Weiner's study is based on a prodigious amount of research into thousands of documents that have been declassified or otherwise uncovered, as well as oral histories and interviews. And one of the truly startling, eye-opening revelations in Legacy of Ashes is just how close even the agency's avowed triumphs came to disaster. As Weiner documents, both the Guatemalan operation and the overthrow of the government of Iran (Operation Ajax) in 1953 teetered on the edge of catastrophe. They were run by old boys whose management skills seemed to combine Skull and Bones with the Ringling Brothers.

And of course the "success" in Iran, restoring the Shah and his notorious secret police, the SAVAK, to power, was all about oil, grabbing it back from Mohammed Mossadeq, who had nationalized it. The coup, run by the CIA's Kim Roosevelt, Teddy's grandson, was followed in 1979 by the takeover of the ayatollahs, arguably a direct outcome of Islamic resentment of the agency's meddling in that country. Today, Iran, with its ominous nuclear weapons program and defiance of the West, looms as a much greater foreign policy challenge to the Bush administration, and to world peace, than Iraq ever was. Thanks a bunch, Langley.

Weiner carefully traces the agency's history from the start, when Harry Truman, realizing he had disbanded the wartime OSS too quickly, anointed Sidney Souers, a St. Louis businessman who had run the Piggly Wiggly supermarkets, as the first central intelligence chief. In a White House ceremony, Truman presented Souers and Admiral William Leahy, the White House staff chief, "with black cloaks, black hats, and wooden daggers." Weiner recounts a series of botched operations run by the likes of Tracy Barnes, Desmond FitzGerald and Richard Bissell, who were among the CIA's leading spooks in the agency's early years. But he reserves his greatest contempt for Frank Wisner, the agency's first covert operator, who sent dozens of agents to their deaths in the Ukraine and Albania and wasted the CIA's millions on a phantom army in Poland that was invented by Soviet and Polish intelligence to befuddle the agency.

As Weiner tells it, the arrogance of CIA Ivy Leaguers was matched only by sheer incompetence. From the start, the CIA hid its failures behind a Top Secret label and was useless in its ability to penetrate the Soviet Union or any other foe. In one year, he notes, the agency managed to miss the Soviet atom bomb, the Korean war and China's entry into that conflict. Weiner also finds little to admire in Allen Dulles, who presided over the agency in its heyday but had to depart after the disastrous Bay of Pigs invasion. He portrays Dulles as a sort of duplicitous Santa Claus, over the hill by 1961, shuffling about in carpet slippers. But Dulles's OSS record in penetrating the Nazi high command from Switzerland had been impressive. And based on my personal observation and conversations with Dulles in the early 1960s he was not a doddering old man in carpet slippers but a shrewd professional spy.

Although most of Weiner's research is superb, he unfortunately perpetuates the legend that CIA director Richard Helms stood firm against Richard Nixon's Watergate cover-up. Not so. In an odd footnote, Weiner says Helms "complied with the president's order to go along with the cover-up for sixteen days at most." But the author, who quotes extensively from dozens of CIA documents, curiously makes no mention of the damning memo that Helms wrote to his deputy, Vernon Walters, on June 28, 1972, about the FBI investigation of the break-in: "We still adhere to the request that they confine themselves to the personalities already arrested or directly under suspicion and that they desist from expanding this investigation into other areas which may well, eventually, run afoul of our operations." It was a bald-faced lie, exactly what the White House was demanding that Helms tell the FBI.

If there is a flaw in Legacy of Ashes, it is that Weiner's scorn for the old boys who ran the place is so unrelenting and pervasive that it tends to detract from his overall argument. He is unwilling to concede that the agency's leaders may have acted from patriotic motives or that the CIA ever did anything right.

Nevertheless, Legacy of Ashes succeeds as both journalism and history, and it is must reading for anyone interested in the CIA or American intelligence since World War II. Weiner quotes Dean Acheson's prophecy about the CIA to good effect: "I had the gravest forebodings about this organization . . . and warned the President that as set up neither he, the National Security Council, nor anyone else would be in a position to know what it was doing or to control it."

Copyright 2007, The Washington Post. All Rights Reserved.

AUTHOR’S NOTE

Legacy of Ashes is the record of the first sixty years of the Central Intelligence Agency. It describes how the most powerful country in the history of Western civilization has failed to create a first-rate spy service. That failure constitutes a danger to the national security of the United States. Intelligence is secret action aimed at understanding or changing what goes on abroad. President Dwight D. Eisenhower called it “a distasteful but vital necessity.” A nation that wants to project its power beyond its borders needs to see over the horizon, to know what is coming, to prevent attacks against its people. It must anticipate surprise. Without a strong, smart, sharp intelligence service, presidents and generals alike can become blind and crippled. But throughout its history as a superpower, the United States has not had such a service.

History, Edward Gibbon wrote in The Decline and Fall of the Roman Empire, is “little more than the register of crimes, follies, and misfortunes of mankind.” The annals of the Central Intelligence Agency are filled with folly and misfortune, along with acts of bravery and cunning. They are replete with fleeting successes and long–lasting failures abroad. They are marked by political battles and power struggles at home. The agency’s triumphs have saved some blood and treasure. Its mistakes have squandered both. They have proved fatal for legions of American soldiers and foreign agents; some three thousand Americans who died in New York, Washington, and Pennsylvania on September 11, 2001; and three thousand more who have died since then in Iraq and Afghanistan. The one crime of lasting consequence has been the CIA’s inability to carry out its central mission: informing the president of what is happening in the world.

The United States had no intelligence to speak of when World War II began, and next to none a few weeks after the war ended. A mad rush to demobilize left behind a few hundred men who had a few years’ experience in the world of secrets and the will to go on fighting a new enemy. “All major powers except the United States have had for a long time past permanent worldwide intelligence services, reporting directly to the highest echelons of their Government,” General William J. Donovan, the commander of the wartime Office of Strategic Services, warned President Truman in August 1945. “Prior to the present war, the United States had no foreign secret intelligence service. It never has had and does not now have a coordinated intelligence system.” Tragically, it still does not have one.

The CIA was supposed to become that system. But the blueprint for the agency was a hasty sketch. It was no cure for a chronic American weakness: secrecy and deception were not our strengths. The collapse of the British Empire left the United States as the sole force able to oppose Soviet communism, and America desperately needed to know those enemies, to provide foresight to presidents, and to fight fire with fire when called upon to light the fuse. The mission of the CIA, above all, was to keep the president forewarned against surprise attack, a second Pearl Harbor.

The agency’s ranks were filled with thousands of patriotic Americans in the 1950s. Many were brave and battle–hardened. Some had wisdom. Few really knew the enemy. Where understanding failed, presidents ordered the CIA to change the course of history through covert action. “The conduct of political and psychological warfare in peacetime was a new art,” wrote Gerald Miller, then the CIA’s covert–operations chief for Western Europe. “Some of the techniques were known but doctrine and experience were lacking.” The CIA’s covert operations were by and large blind stabs in the dark. The agency’s only course was to learn by doing—by making mistakes in battle. The CIA then concealed its failures abroad, lying to Presidents Eisenhower and Kennedy. It told those lies to preserve its standing in Washington. The truth, said Don Gregg, a skilled cold-war station chief, was that the agency at the height of its powers had a great reputation and a terrible record.

Like the American public, the agency dissented at its peril during the Vietnam War. Like the American press, it discovered that its reporting was rejected if it did not fit the preconceptions of presidents. The CIA was rebuked and scorned by Presidents Johnson, Nixon, Ford, and Carter. None of them understood how the agency worked. They took office “with the expectation that intelligence could solve every problem, or that it could not do anything right, and then moved to the opposite view,” notes a former deputy director of central intelligence, Richard J. Kerr. “Then they settled down and vacillated from one extreme to the other.”

To survive as an institution in Washington, the agency above all had to have the president’s ear. But it soon learned that it was dangerous to tell him what he did not want to hear. The CIA’s analysts learned to march in lockstep, conforming to conventional wisdom. They misapprehended the intentions and capabilities of our enemies, miscalculated the strength of communism, and misjudged the threat of terrorism.

The supreme goal of the CIA during the cold war was to steal Soviet secrets by recruiting spies, but the CIA never possessed a single one who had deep insight into the workings of the Kremlin. The number of Soviet spies with important information to reveal–all of them volunteers, not recruits—could be counted on the fingers of two hands. And all of them died, captured and executed by Moscow. Almost all had been betrayed by officers of the CIA’s Soviet division who were spying for the other side, under Presidents Reagan and George H. W. Bush. Under Reagan, the CIA set off on misconceived third–world missions, selling arms to Iran’s Revolutionary Guards to finance a war in Central America, breaking the law and squandering what trust remained reposed in it. More grievously, it missed the fatal weakness of its main enemy.

It fell to machines, not men, to understand the other side. As the technology of espionage expanded its horizons, the CIA’s vision grew more and more myopic. Spy satellites enabled it to count Soviet weapons. They did not deliver the crucial information that communism was crumbling. The CIA’s foremost experts never saw the enemy until after the cold war was over. The agency had bled the Soviets by pouring billions of dollars of weapons into Afghanistan to help fight the Red Army’s occupying forces. That was an epic success. But it failed to see that the Islamic warriors it supported would soon take aim at the United States, and when that understanding came, the agency failed to act. That was an epochal failure.

The unity of purpose that held the CIA together during the cold war came undone in the 1990s, under President Clinton. The agency still had people who strove to understand the world, but their ranks were far too thin. There were still talented officers who dedicated themselves to serving the United States abroad, but their numbers were far too few. The FBI had more agents in New York than the CIA had officers abroad. By the end of the century, the agency was no longer a fully functioning and independent intelligence service. It was becoming a second–echelon field office for the Pentagon, weighing tactics for battles that never came, not strategies for the struggle ahead. It was powerless to prevent the second Pearl Harbor.

After the attacks on New York and Washington, the agency sent a small skilled cadre of covert operators into Afghanistan and Pakistan to hunt down the leaders of al Qaeda. It then forfeited its role as a reliable source of secret information when it handed the White House false reports on the existence of weapons of mass destruction in Iraq. It had delivered a ton of reportage based on an ounce of intelligence. President George W. Bush and his administration in turn misused the agency once proudly run by his father, turning it into a paramilitary police force abroad and a paralyzed bureaucracy at headquarters. Bush casually pronounced a political death sentence upon the CIA in 2004 when he said that the agency was “just guessing” about the course of the war in Iraq. No president had ever publicly dismissed the CIA that way.

Its centrality in the American government ended with the dissolution of the office of director of central intelligence in 2005. Now the CIA must be rebuilt if it is to survive. That task will take years. The challenge of understanding the world as it is has overwhelmed three generations of CIA officers. Few among the new generation have mastered the intricacies of foreign lands, much less the political culture of Washington. In turn, almost every president, almost every Congress, and almost every director of central intelligence since the 1960s has proved incapable of grasping the mechanics of the CIA. Most have left the agency in worse shape than they found it. Their failures have handed future generations, in the words of President Eisenhower, “a legacy of ashes.” We are back where we began sixty years ago, in a state of disarray.

Legacy of Ashes sets out to show how it has come to pass that the United States now lacks the intelligence it will need in the years ahead. It is drawn from the words, the ideas, and the deeds set forth in the files of the American national-security establishment. They record what our leaders really said, really wanted, and really did when they projected power abroad. This book is based on my reading of more than fifty thousand documents, primarily from the archives of the CIA, the White House, and the State Department; more than two thousand oral histories of American intelligence officers, soldiers, and diplomats; and more than three hundred interviews conducted since 1987 with CIA officers and veterans...