"This whole notion of being global means we have to work collaboratively with other countries," said Suzanne Spaulding, a former CIA assistant general counsel. "They'll be suspicious and uncomfortable if they're dealing with NSA and perhaps more so with DOD. If DOD goes to them and says, 'Let's collaborate on defensive tools. Tell us what you've developed,' they'll be justifiably concerned that what DOD is really doing is perfecting its offensive capability.' "