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The Agent of Influence: Intelligence Operators
The Agent of Influence: Intelligence Operators
Intelligence operators
ALFONSO MONTAGNESE
Itonthetheworld
present international scenario, so deeply and irreversibly changed if compared
of some decades ago,the limits of the so-called "hard power" in protecting 1
national security arebecoming more and more evident and the strengthof the so-called
"soft power"2 is increasingly coming to the surface. This is a new way for a Country
to express itspower, and -despite being very different from the usual means to demon-
strate power - it may allow the Country at issue to protect its vital interests. At the sa-
me time, mostly resorting to influence activities3 , soft power may orient and shape not
only the intra-state reality but also the international one, according to a Country's
strategic goals.
But what do we mean by "influence"?What does influence appeal to in order to produ-
ce its effects? How can an influence campaign be carried out? What are its goals and
what the techniques it makes use of? And, especially, who are the key players of this
kind of activity and what is the relationship between intelligence and influence opera-
tions? How and to what extent can influence operations effectively support gover-
nments, both in their national and international activities, with an eye to actions rela-
ted to the management of national security and to the protection of a Country's inte-
rests? This short contribution will try to concisely answer all the above-mentioned
questions. Nevertheless, it is not to be intended as an exhaustive analysis, but as a "se-
minal " article aimed at stimulating domestic discussion and deeper analysis on the
subject. In addition to this, it represents the starting point ofa research activity regar-
ding methods and techniques to employ influence for a Country's security and defen-
ce purposes.
1 This concept aims at encompassing the traditional political, military, economic and financial tools used in
the past to «measure» the power of a State and its capacity of influence in the international system.
2 Joseph Nye, professor at Harvard University and former President of the US National Intelligence Coun-
cil, in 2004 gave birth to the concept of soft power, in contrast to that of hard power. J. S. NYE, Soft Power:
un nuovo futuro per l’America, Einaudi, Torino, January 2005.
3 P. Cornish, J. Lindley-French, C. Yorke, Strategic Communications and National Strategy, Chatham Hou-
se, September 2011.
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Definition of influence
Before understanding how influence works and who its players are, to define
its outlineit is necessary to give an overview of the most recent definitions
provided by Italian governmental agencies and officials.
The Italian Dipartimento delle Informazioni per la Sicurezza5 (DIS)gave its de-
finition of influence as an "attività condotta da soggetti, statuali o non, al fine
di orientare a proprio vantaggio le opinioni di un individuo o di un gruppo"6
.Such a concise definition, expressed in a simple language and for promotio-
nal and educational purposes7 , provides the following primary essential of
influence:
4 This slogan was realised by the US Office of War Information (OWI) and was included in a poster used to
promote the intervention of the US in the II World War in the eyes of the public opinion and to support the
US fighting force deployed in different battle fronts. OWI, instituted by Franklin D. Roosevelt’s Order No.
9192 of June 13, 1942, was a branch of the US Presidential Executive Office. Its competences were about
planning and conducting influence and propaganda campaigns on a large scale, even beyond US borders,
and, apart from posters, it made use of radio programmes, movies and magazines. OWI carried out its ac-
tivities in collaboration with the Office of Strategic Services (OSS) – the forerunner of the Central Intelli-
gence Agency (CIA) – and with the Psychological Warfare Services (PWB), an agency created on July 1943
by the Anglo-American military government to perform the same task as OWI in support of the military
operations conducted by the Allied Forces Headquarters (AFHQ). After abolishing OWI, on September
15, 1945, its competences were assigned to the Department of State.
5 “Italian Security Intelligence Department”. http://www.sicurezzanazionale.gov.it/web.nsf/pagine/en_dis .
6 “Activities conducted by state or non-state actors in order to condition the opinion of a whole group or of
a single individual for their own benefit”. Presidenza del Consiglio dei Ministri – Dipartimento delle In-
formazioni per la Sicurezza, Il linguaggio degli Organismi Informativi – Glossario Intelligence, Quaderni
d’Intelligence, Gnosis, June 2012.
7 The publication of the Glossario (dictionary) is one of the activities falling under the DIS’s competencies.
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8 “Concept based on the idea that information is a real battle-field among state and non-state actors where
the information itself is both a weapon and a target at the same time. In this context, the term refers to ac-
tions undertaken in order to achieve superiority in the informative domain undermining the information
process, system and data of the enemy, and protecting an actor’s systems and networks, as well as using
this information pursuing national interests. [IW] also includes a series of specific intelligence-like activi-
ties, which presently can take advantage of the potentialities offered by technological progress, such as
influence”. Presidenza del Consiglio dei Ministri - Dipartimento delle Informazioni per la Sicurezza, Il
linguaggio degli…cit.
9 F. Cossiga, I Servizi e le attività di informazione e di controinformazione - Abecedario per principianti,
politici e militari, civili e gente comune, Rubbettino, Soveria Mannelli, March 2002.
10 “Non-ordinary intelligence activities”. The term refers to activities not falling into the «ordinary» activi-
ties of information collection and assessment, according to Cossiga’s classification.
11 “An actor tries to turn into its own favour the policy of a country”. F. COSSIGA, I Servizi e…op. cit.
12 Offensive intelligence activities are opposed to defensive ones, which comprise «counter-influence» ope-
rations, defined by Cossiga as activities contrasting influence and intervention operations. Ibidem.
13 “Attack the country of interest […] influencing its decision-making process”. Ibidem.
14 According to general international law and to the United Nations Charter, Article 2(7), interference can
be considered as a limitation to a country’s national sovereignty for its being an unlawful intrusion in the
field of its «domestic jurisdiction». M. R. SAULLE, Lezioni di diritto internazionale, Edizioni Scientifiche
Italiane, Napoli, 1998.
15 “Prominent positions such as control over networks, ownership of media, financial districts or of a single finance
corporation taken over either covertly or even overtly”. F. COSSIGA, I Servizi e…op. cit.
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General Mario Maccono, formerly Director of the SISMi16 training school, and
General Maurizio Navarra, formerly senior official of the SISDe17 , stressed
how complementary influence and other typical intelligence activities are.
These latter - which include interference, disinformation, and intoxication -
are employed in a coordinated and combined way to plan and conduct offen-
sive operations18 aimed at destabilizing19 an opposing country (or another or-
ganization).
After reviewing the main definitions of influence, gathered from Italian un-
classified documents, it is necessary to concentrate the analysis on the actors
involved in influence operations: the agents of influence, focusing on their re-
lationship with those agencies usually in charge of the planning, coordination
and management phases of the relevant activities: intelligence services. With
respect to this last aspect it needs to be pointed out how influence - especially
at strategic level-takes place thanks to a complex "ecosystem" made out of a
wide set of organizations20 , whose competences are not always so strictly
marked out and whose actual functions are not so easily recognizable, and of
individuals, some of whom sometimes not even aware of the part they play21
and of the ultimate aim of their actions.
The CIA defined the agent of influence as the “most dangerous and least
publicized of all agents” 22, tracing back to the Bible the first influence opera-
tion historically documented, and whose protagonist is Hushai the Archite23.
16 “Military Intelligence and Security Service”. It was the Italian military intelligence agency until 2007, now.
replaced by AISE, the “External Intelligence Security Agency”
http://www.sicurezzanazionale.gov.it/web.nsf/pagine/en_aise .
17 “Intelligence and Democratic Security Service”. It was the Italian domestic intelligence agency until 2007,
now replaced by AISI, the “Internal Intelligence Security Agency”.
http://www.sicurezzanazionale.gov.it/web.nsf/pagine/en_aisi .
18 M. Navarra, M. Maccono, “La destabilizzazione”, Per Aspera ad Veritatem, n. 24, Roma, September – De-
cember 2002.
19 According to Edward Luttwak, the planning stage of a destabilization campaign, necessary to perform a
coup d’etat, needs to chiefly influence the decision-making process of the enemy’s bureaucracy. E. Lutt-
wak, Coup d’Etat - A Pratical Handbook, Fawcett Premier Book, New York, 1969.
20 Influence operations planned by intelligence agencies can be carried out both resorting directly to their
own agents of influence, and indirectly to think tank, consultancy companies, networks (radio, newspa-
pers, etc.), cultural organizations, training, research and academic centres, clubs and other organizations
present in the civil society and able to affect opinions, ideas and feelings and, therefore, on the beha-
viours and attitudes of groups or of single individuals.
21 P. Cornish, J. Lindley-French, C. Yorke, Strategic…cit.
22 C. N. Geschwind, “The Tale of Hushai the Archite - The influence agent in Biblical times”, CIA - Center
for the Study of Intelligence, Studies in Intelligence, vol. 13-2, 1969.
23 Hushai the Archite, counselor of King David, intervened as an agent of influence in favour of the King in
countering his son Absalom, who wanted to usurp the throne. Hushai, instructed to do so by King David,
pretended to defect to Absalom as his new counselor. Therefore, he was able to influence his perceptions
and decisions so as to disadvantage him on the battle-field and thus causing his defeat.
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24 “A secret agent who acts under false pretences but overtly and without committing any crime. Instead,
the agent of influence spreads ideas, maintains certain arguments and leads opinion movements on the
basis of the instructions he receives and complies with in order to achieve certain effects for the enemy’s
establishment, which can be functional to his own country’s interests. [Also] he is sometimes so commit-
ted to his activity that he does not even realise that he is […] influenced by other subjects in his actions
and that he might be acting, maybe in good faith, for others’ interests or even against his own or his coun-
try’s ones”. A. Viviani, Servizi segreti italiani, 1815 - 1985, Adkronos Libri, Roma, 1986.
25 W. J. Raymond, Dictionary of Politics - Selected American and Foreign Political and Legal Terms, Brunswick,
1992.
26 “Executives of a country or people «helped» to advance in the fields of politics, bureaucracy, science, fi-
nance, banking, or still, particularly prestigious people, either personally, culturally or morally”. F. Cos-
siga, I Servizi e…op. cit.
27 A. Shulsky, G. Schmitt, Silent Warfare…op. cit.
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sions, lets him access sensitive information, sometimes essential for the very
planning and performing of influence operations. Once again the above-men-
tioned interconnection between intelligence and influence emerges. Moreo-
ver, Shulsky and Schmitt explain that the agent of influence is not necessarily
in the permanent staff of an intelligence service and, therefore, the relation-
ship between the agent and the service is frequently flexible and varies accor-
ding to the circumstances and the operative context in which the agent is em-
ployed. Bearing in mind the «variable level of relationship» between intelli-
gence services and agents of influence, these latter can be placed in three diffe-
rent categories, depending on their level of awareness and/or on the degree of
control exercised by the agencies over the agents:
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[…] agents provocateurs, agenti doppi e […] agenti di influenza”33 and, lately
more and more resorting to international organizations specialized in public
relations and marketing.
Angelo Codevilla, professor of International Relations at Boston Universi-
ty and former member of the US Senate’s Select Committee on Intelligence,
described agents of influence as “allies in the councils of a foreign power”34,
employed by a State in order to express its «political warfare» capabilities35.
He added that:
- agents of influence do not merely carry out orders nor are generally dri-
ven by monetary rewards;
- although this kind of activities are basically conducted overtly (since the
agents have to show their feelings, behaviour and sympathies, in order to
influence others’ opinions), nevertheless, the coordination procedures
and the networks agents of influence use to stay in connection with the
agency they work for are likely to remain secret (for the agents and the
real aim of the operation not to be discovered);
- an excessive exploitation of agents of influence risks overexposing them
and identifying them by the target security services;
- an accurate planning activity and reasonable, sound plans to be carried
out are required prior to resorting to agents of influence, especially if
they supposed to be placed in positions of power in the enemy’s gover-
nment, in the long run36;
- influence operations can actually guarantee considerable results only if
supported by intelligence (about the context the operation has to be car-
ried out in and the real ability of the agent of influence) and counterintel-
ligence (on the agent’s actual intentions and his level of cooperation and
loyalty).
33 “Both political and diplomatic media but […] also […] agents provocateurs, double agents and agents of
influence”. P. Guzzanti, I servizi russi…cit.
34 AA. VV., Political Warfare and Psychological Operations – Rethinking the US Approach, by F. R. Barnett,
C. Lord, National Defense University Press, Washington DC, 1989.
35 “Political warfare is a term […] that seems useful for describing a spectrum of overt and covert activities
designed to support national political-military objectives”. Ibidem.
36 A classic example is the case of the South Vietnamese generals recruited by the US in the 1960s. Firstly,
they were employed as agents of influence to condition the policy of President Diem (who in turn had be-
en a US agent of influence since the early 1950s), and then to succeed him after a coup d’etat, in Novem-
ber 1963. Although the new leadership had been chosen and supported by the CIA and the Washington
diplomacy, after being placed in power, it turned out to be corrupted, inefficient and not favouring US in-
terests in South Vietnam and in the region. Moreover, since no plan had been arranged between the Viet-
namese agents and the US for the period following the generals taking the power in the country, the US
could not take advantage from the situation to turn in their favour the war in Vietnam.
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To better understand how and to what extent agents of influence can de-
termine events - or, at least condition them -, it may be useful to list some do-
cumented cases from different historical periods, countries and fields of ac-
tion.
According to the CIA Directorate of Operations37, Benjamin Franklin - one
of the US founding fathers – conducted paramilitary and propaganda activi-
ties and was one of the most crucial agents of influence of the Northern colo-
nies during the American Revolution38. In fact, while in Paris as a diplomatic
agent, he managed to convince France to provide the US with logistic, milita-
ry and economic support and to sign an anti-British agreement.
William Stephenson acted as a British agent of influence during World
War II in the USA, not only to analyse and monitor US activities, but especial-
ly to influence its establishment in favour of British interests39. In May 1940
Stephenson established in New York the British Passport Control Office40
(BPCO) as a cover office of the British Security Coordination41 (BSC), reporting
directly to the Secret Intelligence Service (SIS), commonly referred to as MI6.
Thanks to the above-mentioned BPCO and an influence network of more than
three thousand people 42, Stephenson turned the main US press organizations
(The Herald Tribune, The New York Post, The Baltimore Sun, etc.) in Great
Britain’s favour, convincing the US public opinion and the government to take
the field against Nazi Germany and its allies43.
James Angleton was chief of the Counterintelligence Staff of the CIA and
responsible for coordination with foreign intelligence services. He was in clo-
se contact with Israel and its intelligence agencies44 and, probably, was an
Israeli agent of influence employed by Tel Aviv to acquire nuclear technology
and other sensitive military information as well as affect some choices of the
37 P. K. Rose, The founding fathers of American intelligence, CIA - Directorate of Operations - Center for the
Study of Intelligence, Books and Monographs, 1999.
38 www.cia.gov/news-information/featured-story-archive/benjamin-franklin.html.
39 W. Stevenson, A Man Called Intrepid – The Secret War, Lyons Press, Toronto, 2000.
40 www.nytimes.com/1989/02/03/obituaries/william-stephenson-british-spy-known-as-intrepid-is-dead-at-93.html.
41 H. B. Peake, The Intelligence Officer’s Bookshelf, CIA - Center for the Study of Intelligence, Studies in In-
telligence, vol. 53-1, March 2009.
42 www.guardian.co.uk/uk/2006/aug/19/military.secondworldwar.
43 Edward Luttwak maintained that during the period immediately preceding the US going to war (1941),
British- and German-oriented influence groups and lobbies were operating in America. Their aim was to
influence the US decision-making as per their intervention in the Second World War. E. LUTTWAK,
Coup d’Etat…op. cit.
44 M. Holzman. James Jesus Angleton, the CIA, and the Tradecraft of Counterintelligence, University of
Massachusetts, 2008.
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zio Informazioni Stampa Italiana51 (SISI) and acted for a long time (between
the Fascist period and the early 1960s) as a British agent of influence52. In the
post war period, he was involved in several propaganda campaigns sponso-
red by the Anglo-American Psychological Warfare Branch (PWB)53 and subse-
quently by British intelligence54, not only to control and limit Soviet influence
and propaganda in Italy, but also to “esercitare un controllo sull’opinione pub-
blica interna italiana e screditare l’immagine del nostro paese all’estero”55. In
addition to the several press campaigns conducted in favour of the UK, Barzi-
ni also wrote the famous book “The Italians56”, reported57 to be a climax of the
strong and sharp anti-Italian actions of influence exerted by the UK. The ad-
vertising, promotion and distribution activities of the book were borne by the
British Information and Security Services58.
According to what maintained by Gian Paolo Pelizzaro59, Ruggero Zan-
grandi, who was an Italian writer and journalist, acted as a Soviet agent of in-
fluence60 in Italy during the Cold War. In particular, Zangrandi launched a
sharp journalistic inquiry on the newspaper “Paese Sera”, aimed at undermi-
ning the Italian Servizio Informazioni Forze Armate61 (SIFAr) and to discredit
its activities.
Pierre-Charles Pathé, a French journalist well connected in the country’s
politics and economy, acted as a Soviet agent of influence62. Pathé conducted
an important influence campaign on behalf of the KGB and, from 1976 to 1979,
he published “Synthése”, a bulletin of political analysis for the French ruling
class, aimed at undermining the NATO and, more in general, the West in fa-
vour of the Soviet Union’s interests in France, as well as fostering cooperation
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63 Michele Bachmann, Louie Gohmert, Lynn Westmorleand, Trent Francks and Thomas Rooney, all mem-
bers of the Republican party, on June 13, 2012 formally requested Ambassador Harold Geisel, Deputy In-
spector General of the US Department of State, to investigate into the Muslim Brotherhood’s capacity to
influence American foreign policy and to verify if the involvement of the Muslim Brotherhood (or anyo-
ne linked to them) has been reported with regard to some choices and measures taken while Secretary of
State Hillary Clinton was in office.
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to considerably affect the target’s reactions and him changing behaviours, opi-
nions and attitudes. As far as space factor is concerned, the persuasive effect of
an action tends to increase if the target deems the environment pleasant and
comfortable72. As for time factor, instead, the main aspects to be taken into ac-
count are two: the historical period (opinions and behaviours are variable and
evolve gradually according to the trends of a specific historical period) and
the target’s evolutionary period (given by the target’s «maturity» as well as its
being prone to outer interferences in a given time frame).
Conclusions
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