PERSONNEL DEVELOPMENT BOARD

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80-01826R000300060004-3
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 59
• Document Creation Date: November 17, 2016
• Document Release Date: July 24, 2000
• Sequence Number: 4
• Content Type: REPORT

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PERSONNEL DEVELOPMENT BOARD
SUBJECT
TAB
Proposed Regulation: Career Development and Training . . . . . . . . .
A
Memorandum for Chairman, CIA Career Council, from Director of
Training, dated 14 March 1961, subject: Mid-Career Program . . . .
B
Suggested Statement of Functions for the Career Development Board
proposed by the Director of Training (June 1961) . . . . . . . . .
C
SELECTED EXTRACTS FROM THE INSPECTOR GENERAL'S SURVEYS
OF THE CIA CAREER SERVICE (1959) AND OF THE
CIA TRAINING PROGRAM (1960) AND RELATED PAPERS:
Inspector General's Survey of the CIA Career Service . . . . . . .
D
Discussion and recommendations contained in Survey . . . . .
D-1
Discussion at Career Council meeting, i. May 1960 . . . . . .
D-2
Memorandum from Deputy Director (Support) to Director of
Central Intelligence, 19 May 1960 . . . . . . . . . . . . .
D-3
Recommendation of CIA Career Council to the Director of
Central Intelligence (Memorandum, 26 May 1960) . . . . . .
D-4
Discussion at Career Council meeting, 14 November 1960 . . .
D-5
Discussion at Career Council meeting, 25 May 1961 . . . . . .
D-6
Inspector General's Survey of the CIA Training Program . . . . . .
E
Discussion and recommendations contained in Survey . . . . .
E-1
Memorandum to Deputy Director (Support) from Director
of Personnel, 2!4 October 1960 . . . . . . . . . . . . . . .
E-2
Action on IG's recommendations: Memorandum to Deputy
Director of Central Intelligence from Deputy Director
(Support), 30 November 1960, and Memorandum for
Deputy Directors and Inspector General from Deputy
Director of Central Intelligence, 25 March 1961 . . . . . .
E-3
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25X1A
REGULATION PERSONNEL
1961
I. POLICY
The Central Intelligence Agency shall institute and give continuing support to
organized programs of personnel development and training to assist staff person-
nel attain their career objectives in Agency service, and to ensure to the
Agency the availability of talented individuals to fulfill future staffing re-
quirements. Opportunities and encouragement will be offered to career employees
for acquiring broader knowledge of their occupations or professions, for improving
the skills which they must exercise in performing their technical or managerial
tasks, and for diversifying their experiences to enhance their qualifications
for more responsible assignments. For these purposes the Agency will endeavor
to provide for systems of career planning applicable to all personnel, taking
into account their own capacities for growth, their own aspirations, and their
individual talents and needs. Formal training will be arranged at times appro-
priate to career development, and employees shall be given opportunities to
accumulate over their entire period of service the experiences and additional
training needed to qualify for each progressively higher level.
II STRUCTURE OF RESPONSIBILITIES FOR CAREER DEVELOPMENT AND TRAINING
a. Career Development and Training Board
1. Composition
(a) One member appointed by the DD/I
(b) One member appointed by the DD/P
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(c) One member appointed by the DD/S.
(d) Director of Personnel to serve as member and, in ad.ition,
to serve as Chairman when the Board agenda deals mainly with
matters of career development which are not concerned primarily
with formal training plans and activities.
(e) Director of Training to serve as member and as Chairman when
the Board's business is concerned principally with organized
training plans and resources.
2. Responsibilities
(a)
Recommends to the Career Council the adoption of policies and
plans for creating career development and training opportunities
for Agency personnel, and methods for identifying the individuals
who shall participate in such programs as may be established.
(b). Receives and studies proposals from deputy directorates
(through the appropriate Career Development Officer) for the
rotation of specific individuals to other components of the
Agency when rotation tours or extended details are considered
desirable for development purposes; recommends action to be
taken to the Career Council, or itself' coordinates the arrange-
ments required to effect the action proposed.
(c) Proposes to the Career Council the means which should be
employed to assist personnel acquire managerial and executive
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skills which would be otherwise unduly limited as a result
of functional specialization.
Makes recommendations to the Career Council concerning the
administration of a mid-career training program for officers
at the Ga-12 and GS-13 level in order to prepare them for
future assignment to more responsible positions, to refresh
and restimulate their motivation in the intelligence service,
and to broaden their understanding of the interrelationship
of Agency functions.
Plans and coordinates Agency-wide efforts to identify those
individuals whose performance reflects exceptional talent and
skills for progression to executive levels and proposes to the
Career Council the training-type assignments in other areas
of the Agency before such persons progress too high in their
own fields of specialization to carry out these steps.
(f) Plans and recommends to the Career Council the annual quota
of Junior Officer Trainees deemed necessary to provide an
intake of personnel with high potential in sufficient numbers
to meet anticipated future requirements for the. assignment of
career employees to higher level positions.
(g) Nominates to the Career Council the individuals to be desig-
nated Agency candidates for participation in various
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external training courses, including those administered by
the military services and the Foreign Service.
(h) Makes studies and recommendations concerning the administration
of senior officer training programs.
(i) Reports, at least annually, to the Career Council on the
measures instituted to stimulate career development and
training within each of the deputy directorates and at the
Agency level.
b. Deputy Directors
1. Deputy Directors shall take the steps necessary to create and main-
tain within their components the environment which will motivate
personnel to exert themselves toward self-development, and to
implant among all officials in the line of command an awareness
of their obligation to help the individuals under their supervision
seek out the means for achieving growth.
2. Appoint a Career Development and Training Officer who shall
(a) Advise the Deputy Director concerned on the policies and
methods which should be adopted to realize effective programs
of development and training in the Career Services and operating
offices under the jurisdiction of the Deputy Director;
(b) Coordinate plans and activities among the Career Services
and operating offices under the control of the Deputy Director
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which will provide experience and learning opportunities to
selected personnel, including rotation, details, assignment
to projects or tank forces, and joint training programs;
and
(c) Serve as representative of the Deputy Director on the Career
Development and Training Board.
C. Heads of Career Services
Provide training and development programs for the'personnel assigned to
r
the Career Service in order to satisfy existing and future staffing
demands placed upon the Career Services concerned, and to assist indi-
viduals in the Career Services to achieve the full development and use
of their abilities, skills and potential.
d. Director of Personnel
1. Provides assistance to the Career Services in devising programs for
developing personnel, including (i) the planning of assignment and
training patterns in order to facilitate career progression and
best use of employee skills, abilities and potential, (2) the
methods of evaluation and career counseling employed to identify
personnel with respect to their capabilities, training needs and
readiness for advancement, and (3) the coordination of career
planning programs with other personnel activities such as recruit-
ment, selection and placement.
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2. Provide staff support to the Career Development and Training Board,
including the preparation of studies and recommendations, main-
tenance of records, and assisting in the identification of
specific individuals to participate in career development and
training plans.
e. Director of Training
1. Formulates plans for study and deliberation by the Career Develop-
ment and Training Board and the Career Council for discovering
and developing the potential of Agency personnel at all levels,
and for providing the educative experiences which will contribute
to their growth in their present assignments and toward positions
of greater responsibilities.
2. Administers such training programs as are required to realize the
policy objectives set forth in this regulation.
3. Provides assistance in selecting personnel to participate in
specific career development and training programs through assess-
ment and evaluation of their personal qualities, interests and
potential.
4. Coordinates career development and training programs with other
activities sponsored by the Office of Training.
6_
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14 March 1961
MEMORANDUM FOR: Chairman? CIA Career Council
SUBJECT : Mid-Career Program
1. The Inspector General's recent Survey of the CIA Traina aq Proc ram
recommended that: "The DCI authorize and direct the establishment of a
mid-career training course for officers at the GS-12 and -13 level.... "
2. A review of comments concerning the IG?s survey indicates that
there is general agreement within the Agency that each employee who
reaches mid-career and who has the potential ability to become a senior
officer should be the subject of some form of planned development action
to prepare him for his enlarging role.
3. In his comments on the :?Gs survey, the Director of Personnel
has stated:
"It is obvious that when we speak of middle career and
senior officer gaining and of personnel development we
actually concern ourselves with but a single concept. I
have concluded 3 therefore o that the preferred solution to
the problem of developing a training program that is in
balance with the operational and personnel management
programs of the Agency is to incorporate the training pro-
gram in the area of consideration of the CIA Career Council.
4. It is proposed therefore that the objectives and nature of the
Agency's mid-career program, if such a program is to be established, be
a subject for discussion at an early meeting of the CIA Career Council.
5. During the Career Council discussion of the mid-career program,,
It is suggested that the following considerations, among others,, be reviewed:
The degree to which the Agency is presently capable of:
(1) Evaluating each employee who reaches mid-career
status in terms of his possession or lack of the knowledge,
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experiences, training a management skills, potential
for advancement $ and other qualifications which are
considered desirable for his future career.
(2) Providing each mid-careerist with the specific
training package a internal and/or external, which should
increase his personal qualifications as desired by the
Agency.
(3) Arranging assignments and work associations
which should further increase the personal qualifica-
tions of the individual mid-careerist as desired by the
Agency.
b., The desirability of establishing a program for developing
each mid-careerist on the basis of the specific qualifications
and experiences which he personally needs but lackse as con-
trasted to establishing a single standard training course or,
program to be offered to all mid-careerists
6, Additional copies of this memorandum are attached for distribution
to the members of the CIA Career Council if desired.
25X1A
MATTHEW BAIRD
Director of Training
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THE CAREER DEVELOPMENT BOARD
The Board should be the working staff of the Career Council.
The Board should be concerned with all personnel, training, and
career development policies which concern CIA as a whole, including
the following:
a. Agency regulations and notices concerning the above
policies
b. JOT Program
c. Clerical recruitment, training, and placement
d. Military reserve training
Language Development Program
f . Mid-Career Training Program
g. Senior Officer Development Program
The Board should also screen all applicants for competitive external
training assignments (e.g., War Colleges, State Senior Officer Course,
Harvard), and make recommendations to the Career Council.
In accomplishing the above functions, the Board should act in lieu
of the "Board of Overseers" and the "JOT Advisory and Selection Panels"
recommended by the Inspector General.
The Board should not in any way assume the Agency responsibilities
which have been specifically assigned to the Director of Personnel and
the Director of Training, or the responsibilities assigned to the Personnel
Officers and Training Officers of offices, divisions, and directorates.
The Board similarly should not concern Itself with problems which arise
between the Directors of Personnel or Training on the one hand and any
one of the directorates or their offices on the other hand.
The individual members of the Board should be authorized to submit
minority or dissenting reports or recommendations to the Career Council
If so desired.
In supporting the Career Council, the Board should be authorized to
call upon the Office of Personnel, the Office of Training, or the three
directorates for assistance as needed.
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Extracts From
Inspector General's Survey of the CIA Career Service
Pages 11 - 13
E. Individual Career Planning
1. Based on a policy that allows the individual employee to
express his career interests for an appropriate specified time, the Agency
has published a regulation which outlines the procedures to be followed
for the development of career plans. The regulation permits the employee
to document his ambitions with the help and approval of his supervisor,
and with some assurance that this document will be considered by the Career
Service Boards and Panels concerned with his career development. This
document is known as the Career Preference Outline (CPO).
2. Throughout the Agency career planning is viewed as a burden-
some exercise that creates more problems than it solves. To avoid embarrass-
ment, and the accusation of not living up to its promises, the Head of the
Clandestine Services' Career Service has jettisoned individual career planning
and substituted a more practical method of using the Field Returnee Question-
naire (FRQ) as an aid in making assignmehts more compatible with the express
desires of the individual. For the large majority assigned to the Clan-
destine Services' Career Service, this substitution can be considered
adequate for the immediate future but in no way can it be regarded as sound
long-range career planning.
3. Treatment accorded individual career planning by the other
Career Services ranges from meticulous compliance with the regulation to
almost complete abandonment of its provisions. In general the results have
been unsatisfactory regardless of which method is followed. Those who
have complied have acquired enormous files of CPO forms and expended many
hours of time in conferring with employees but few plans have ever been
put into effect. Those who have abandoned the program have recognized
it as impractical and actually counterproductive.
~.. The principal defect of this program is its mass approach.
It is based on the theory that every employee should have a planned career
which he should design himself. The average employee who attempts to do
this is faced with the realization that he is ignorant of the Agency and
its functions outside his own component. His supervisor seldom is able
to assist him in this respect. When the career plan extends beyond the
limits of the immediate service (and it frequently does) even the Head of
the Service often is helpless to put the plan into effect because of
inadequate communications between services. When the plan is limited to
the immediate service there is no need for the elaborate process--it
becomes a part of normal good personnel management. Furthermore, career
planning on this basis is doomed to failure because it is lacking in
Agency-determined objectives and thus cannot fill Agency needs. It is an
aimless procedure which all too often frustrates the individual, dulls
his enthusiasm and ambition and ultimately defeats its own purpose.
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5. Career planning can only be accomplished successfully on a
selective basis and with well defined objectives in view. It must be
given guidance and direction by an instrument of the Agency having knowledge
of the over-all Agency needs and able to determine the necessary objectives.
It is for these reasons we believe the present individual career planning
program should be permitted to die quietly with the recision of R 20-115.
Actions recommended in other sections of this report will provide the
proper basis for career development and planning which will accomplish
the purpose at much lower cost. It is
Recommended that:
The Director of Personnel rescin when action is
taken on recommendations appearing at the conclusion of this
report.
25X1A (NOTE: has been rescinded. )
25X1A
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G. Evaluation of the Present Program
1. In our analysis of the present program it becomes quite appar-
ent that a tremendous effort is being made in terms of time and manpower
to conduct this program but that career development, its principal purpose,
is not being advanced effectively. The effort put forth by the Heads of
Career Services and the various boards and panels has resulted in the
development of some sound policies and practices in personnel management.
Principal among these has been competitive promotion which at least
assures each employee of a periodic review of his status and due considera-
tion of his performance and qualification for advancement. The establish-
ment of boards and, panels has been beneficial since they inject a measure
of impartiality into personnel management and reduce to some extent the
practice of flagrant favoritism. Finally, the requirements of the program
are such that they compel senior officials to take a greater part in per-
sonnel management than they otherwise might. It was noted in examining
the operation of the program that the beat managed career services which
contributed most to the employees were headed by officials who believed in
it, accepted its purpose and pursued its objectives aggressively. Unfortu-
nately not all officials have supported the program fully.
2. The failure of the career program to achieve its purpose its
due in large part to deficiencies inherent in the Career Service structure
and, to a major degree, to the inability of marry-senior officials to under-
stand and accept the basic requirements of-pareer development. As we have
found the Career Services are based on the Agency's organizational
structure which has the effect of creating separate career services for
each Agency component. This accentuates and serves to perpetuate undesir-
able and harmful compartmentat9.on which is not based on security needs.
There is very little communication between services and no provision has
been made to facilitate essential actions transcending the limits of the
immediate component. Furthermore, most of the services attempt to deal
with all the unrelated occupations found in their components such as sub-
stantive, operational, clerical, support, technical and managerial. Some
of these occupations are so narrow that career development is practically
impossible. Employees in interchangeable occupations in other services
do not compete with one another nor is there effective freedom of movement
between services.
3. Under this system career development depends largely on the
initiative of the individual. If he feels impelled to make a change, to
seek opportunity for advancement, or to try his hand at a different branch
of service he must make it on his own and he gets little or no assistance
from his Career Service. Those officials who are willing to help frequently
find themselves enmeshed in administrative red tape to a point of complete
frustration. Other supervisors, unfortunately, are less enlightened and
more self-serving; they tend to regard such individuals as disgruntled
(which may be true) or disloyal. Where this attitude exists the individual
employee may suffer a severe set back to his career if he has the temerity
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to ask for the assistance of the mechanism established for the purpose of
career development. His only opportunity lies in his ability to negotiate
a reassignment on his own (and this is done quite frequently) and then
sever connections with his former service. The end result when successful
is not a part of a planned calculated action intended to meet an Agency
need but only one believed by the individual to be in his ovn best interests.
There is a better than even chance that the action will actually be harmful
both to the individual and the Agency.
Ii.. Finally, a major deficiency of the current program is that it
does not accept or concern itself with Intelligence as a profession or a
total occupation but is limited only to its separate parti. Its basic
concept implies that each office or each separate function is a career in
itself and it does not recognize the need for developing the fully experi-
enced, broad guage, professional intelligence man the Agency so badly needs.
5. From this evaluation the conclusions we have reached are
a. The present program is inflexible and unresponsive to
the Agency's present and future needs. It does not meet the basic princi-
pal of career development; mobility and movement.
b. It fails to meet the needs of the employees; it does not
'offer broad opportunity for advancement, it frequently does not reward
the most deserving or properly deal with those who "do not perform as
effective members of the Agency."
c. It 9s undistingui..shable from the.normal effective person-
nel management the Agency has a right to expect from its managers and
executives.
d. It is lacking in specific objectives and can only develop
more specialists but not fully experienced personnel to fill the Agency's
key positions.
e. Perhaps most important it is lacking in authoritative
centralized direction.
6. In summary, the present career program could be abolished
without significant lose to the Agency or its employees. The same essential
needs of the Agency recognized and defined by the founders of this program
exist today unchanged and unfulfilled.
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I. Fundamentals of Career Development
1. As we have seen one reason for the failure of the present
career program to achieve its purpose is the lack of complete under-
standing and acceptance of the basic principles of career development.
These are some of the points on which general agreement must be reached:
a. Recognition of Intelligence as a profession. This
includes all functions of the intelligence process from collection
through interpretation plus the covert action responsibilities of the
Agency and the integral support activities that are an essential part
of intelligence.
b. There is a distinction to be drawn between intelligence
careerists and non-careerist Agency employees. The latter will include
many specialists at all levels whose careers lie in other fields but
whose services are required by the Agency in the performance of its
mission.
t
c. Career development is a highly selective process which
will e1pure opportunity and preparation for the most capable. It is not
a form of paternalism intended to lead 'all employees by the hand from
EOD to retirement nor is it a blanket guarantee of success without effort.
2. There must also be general acceptance of these principles of
a career program:
The growth pattern of the employee under a career program is
characterized by mobility and movement. He is encouraged to move from one
activity to another to follow career opportunities, develop in his
selected functional line of work and grow in his career field. He is
encouraged to be mobile in his earlier years; in his senior years he is
expected to stabilize in a senior managerial position to provide the
organizational continuity needed.
3. The specific objectives which must be reached in order to
accomplish the purpose of a career program are:
a. To develop capable people to perform effectively at
b. To induce well qualified young people to take up a
career in intelligence work
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K. Meeting the Present Needs
1. The discussion that has taken place thus far has been con-
cerned primarily with neeting the needs of the future. At the present
time, however, we have an Agency fully staffed with employees who have
not had the benefits of a proper career program and for whom some pro-
vision must be made as a matter of priority.
2. Present employees at all levels must be equipped to do
their present jobs better and be prepared to assume greater responsibilities
more effectively. They can be divided generally into three groups; senior
managerial and executive, GS-14 and above; intermediate, GS-12 and 13;
junior and trainee, GS-7 through 11.
3. The senior group must be carefully evaluated to determine:
a. Those who are inadequate for the position occupied and
have no potential.
b. Those who are inadequate but have potential for improved
performance through development.
c. Those who are adequate for their positions and have
potential for growth through development.
u. Prompt but fair and equitable disposition should be made of
the first category.
5. Development opportunities for the second category are limited
and probably should consist of adjustment of assignment, internal or
external formal. training, demotion if necessary.
6. The third category should have everything it needs including
personal rank assignments for essential work experience, formal training,
highat level staff work for capable line officers and any other develop-
mental action that will bring results without regard for administrative
red tape. Due consideration must be given to the number of productive
years remaining to the individual so that retirement does not overtake
him before development objectives are reached.
7. The intermediate group must be screened to identify those
having demonstrated capacity for development and given every opportunity
to acquire the training and experience they have been denied up to this
point and to seek the assignments for which they are best qualified.
Those who have already reached their maximum level should be given what-
ever is necessary to make them more effective in their present jobs.
8. The junior group should also be thoroughly screened to
identify those with the best potential for development and to eliminate
those who do not measure up to professional standards. Those who are
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retained should be directed to complete their apprenticeship in prepara-
tion for the specialized field they will pursue through the intermediate
and senior stages. Elimination of the unfit must be accomplished at the
earliest possible time in the interests of both the individual and the
Agency. The young man will adjust more readily to separation and will find
restablishment easier. The longer an inadequate employee remains on the
rolls the more difficult is the ultimate disposition.
L. Methods of Accomplishment
1. The objectives cpm be accomplished through a CIA Career Devel-
opment Board which would be rLesponsible for directing the development pro-
gram. It should have a permanent Chairman appointed by the DCI and three
members, senior officers, one from each Deputy Directorate assigned on a
tour of duty basis. It would be a full-time activity for every member.
There would also be a secretariat with staff assistance provided by Office
of Personnel. The Board would make policy in the field of career service;
advise on standards of recruitment, training and performance; advise and
consent with respect to selection, training, assignments and promotions;
and, on a selective basis, monitor the careers of qualified persons.
It would make use of the facilities of the present Career Service Boards
and Panels and the Office of Personnel and not duplicate services now
being effectively provided by support components.
2. The Board would function independently of the chain of com-
mand., report directly to the DCI and exercise his authority in the
implementation of its recommendations. To function successfully it would
require the wholehearted support of the Deputy Directors and Operating
Officials; it must also be provided with certain instruments of persuasion
to induce compliance with its actions. The service designations of all
professional trainees should be with the Board until the apprenticeship
period (5 years) is completed. Thereafter the Board will monitor and guide
career development on a selective basis but be empowered to require training
or work experience as needed to insure proper completion of the develop-
ment process.
3. Once the Career Development Board has been established the
present Career Council, Supergrade Board, Selection Board and Examining
Panels should be abolished.. The CD Board should determine eligibility for
membership in the Career Staff with the assistance of the Career Service
Boards and Panels. There should be a substantial reduction in the number
of such boards and panels probably evolving ultimately into major occupa-
tional groupings rather than organizational as at present.
M. Impiemer.tat iioon
1. The appointment of the Career Development Board should
take place immediately with the designation of a Chairman by the DCI
and a member each by the DD/P, DD/I and DD/S. The Chairman should
appoint the Executive Secretary. The position of chairman should be
filled by a very senior officer who has had broad experience in the
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Agency, a good grasp of the problems of effective manpower utilization
and a complete acceptance of the feasibility and value of career
planning. The members of the Board also should be senior officers
each with extensive experience in his own area and a thorough knowledge
of its needs. Ideally they should have a sound understanding of Agency-
wide activities and problems as well.
2. The CD Board should be authorized by Agency regulation to
make policy in the career service field; to advise the DCI in matters con-
cerned with career service; to give guidance and direction to the Heads
of Career Services in matters concerning career development; and to direct
the implementation of the career development program. Although the Board
basically will be advisory in nature it must be given adequate authority
to accomplish the objectives of the program. Such authority must be
derived from the DCI. The Board should have the full support of all
Operating Officials and it is anticipated that its determinations generally
will be acceptable to them. There may be occasions, however, when Operat-
ing Officials lose sight of Agency interests in favor of their own and
when this occurs the Board must have the authoritative backing of the DCI.
L.. Since the Board is responsible for developing persons to then
fullest extent to meet the Agency's needs it must concern itself with all
employees regardless of grime or level. This will include supergrades as
well as all other personnel. As it assumes its full responsibilities for
policy making and direction of the career program the need for existing
committees such as the Career Council and Supergrade Board will diminish
and they can be eliminated. The proposed revision of the Career Staff
process will eliminate the need for the Selection Board and Examining
panels and the manpower savings should more than offset the cost of the
new positions.
5. The CD Board should inaugurate two major programs simttlta-
neously; one directed at meeting present needs for a general improvement
of performance at all levels through development and the other concerned
with establishing the long range program to meet the Agency's future needs.
Both have been outlined in the preceding section of this report. The
former will focus on the intermediate and senior levels of the Agency and
provide for appropriate training and work experience for the most capable
employees In these categories. Much of this will have to be done on an
individual case basis with the exercise of judgment and care to achieve
maximum results with minimum disruption of current activities. This pro-
gram smut be pursued vigorously taking advantage of all the facilities now
at hand. It must7mot be permitted to bog down because of involved adminis-
trative procedures or be diverted from its ultimate goal for reasons of
expedience. It should be restated at this point that this will be a highly
selective process and that no mass movement of people will occur. We
expect that the Board's actions will be accepted in good spirit and with
the knowledge that benefits will accrue to the Operating Official as well
as to the Agency and the individual even though temporary inconveniences
may be encountered.
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18. Recommendations. It is
Recommended that:
a. The DCI authorize the establishment of a CIA Career
Development Board; appoint a properly qualified senior officer
as its permanent chairman and three members, one each from
candidates nominated by the DD/P, DD/I and DD/S; and, instruct
the Board to establish and direct a career program generally
conforming to the outline contained in the text of this report.
b. The DCI approve the disestablishment of the CIA Career
Council and the Supergrade Board and the transfer of their
essential responsibilities to the CIA Career Development Board.
c. The DCI approve the disestablishment of the Selection
Board and Examining Panels and the transfer tit their respon-
sibilities to the appropriate Heads of Career Services.
d. The Deputy Directors issue instructions to their
Operating Officials to give full support to the Career
Development Board and to make available to it records and other
data pertinent to its mission.
e. The Chairman, CIA Career Development Board, move with
deliberate speed to formulate the plans and procedures neces-
sary to conduct the career program and at the earliest practical
time prepare and distribute to all employees a brochure explain-
ing in essential detail the purpose and objectives of the program
and the methods of implementation.
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DISCUSSION AT CIA CAREER COUNCIL MEETING
[Paraphrased from Transcript)
4 May 1960
1. We intend to appoint in the relatively near future a Career Development Officer,
so that our interest in the Career Development Board is to accept the proposal with some
modifications: We would see this as a Board which made general Agency policy but wouldn't
actually handle individual cases of people or groups of people -- that, in our opinion,
is a function of command and should remain with the respective Deputy Directors. Career
policy coordination and matters of that sort would come before the Board but the actual
careers of individuals should be handled by the Deputy Director concerned through a
Career Development Officer he would appoint and who would be a member of such Board as
is established. But if we understand the IG's recommendation, the Board would be an
adjunct of the DCI's office and would acquire certain powers which we feel it should not
have.
2. The reaction of our senior officers to the Career Development Board as recom-
mended by the Inspector General is unanimously negative. We feel that such a Board would
duplicate or usurp the responsibilities of the Director of Personnel and that to consti-
tute a Board with the authority to overrule the decisions of the Deputy Directors is not
feasible. We do think that a small group of people, possibly one person working for each
Deputy Director but under the chairmanship of the Director of Personnel and responsible
to the Director of Personnel, might serve a useful purpose in arranging more rotation or
better planned rotation and developing the careers of a small number of people who should
be moved across Directorate lines. Otherwise, we believe that Deputy Directors should
assume primary responsibility for career development within their components and without
a Board with the powers that the one proposed would have.
3. The Council has agreed, then, to the need for a Board or device chaired by the
Director of Personnel whose principal concern would be career development policy and
arrangements for developmental exchanges of personnel among the major components of the
Agency.
4. The Career Development Board might also perform certain chores, particularly
that of interviewing candidates for the senior service schools, for the Council, but
the CIA Career Council must be continued to settle major personnel policy questions. The d the job we propose to assign to the Career DeveloopmentBoard rdviisaagtrrgmendoustone and learning
members of the Board and the people working with to know the people and the jobs in their Services. Career development needs the concen-
trated efforts of a few good men in each component. These men would get together once
they have sorted out the people in their Services and identified the "comers", the problem
cases, and so forth, for the purpose of moving such people across lines. But that is
rather the last job they get to and if this effort turns into an exercise of writing and
coordinating staff papers and sending them up to the Director, into a lot of "busy work", as a
policyhmatters tndl oethee
ersonnel we won't have ceecoordinattiontand preresentsultinportant. The
paper work and the
CIA Career Council...
5. There has been considerable confusion in the Agency over the use of the terms
Board
g Services, other so
Career Service Progrim,
which Development
wwe have been ~
Board.
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COl4 WT CONTAfl ED IN ME}1ORANDUM FOR DIRECTOR OF CENTRAL INTELLIGENCE
FROM DEPUTY DIRECTOR (SUPPORT) DATED 19 May 1960
....My comments on the specific recommendations of the Inspector General
are as follows :
b. Career Development Board:
I do not concur in the recoendation to establish a Career Devel-
opment Board as proposed by the Inspector General. I do, however, recommend
the appointment by each Deputy Director of a Career Development Officer to
work with the Deputy Director in the furthering of the career development of
individuals within that component and to serve on a Personnel Development
Board chaired by the Director of Personnel. This Board would recommend
Agency career development policies and arrange, with the concurrence of the
Deputies concerned, for the movement of individuals from one component to
another in the interest of career development.
FROM ATTACI .'3T (TAB B) TO ABOVE MEMORANDM, Summary of Deputy Director
Su fort) Office Heads' Views
..A fourth common theme running -through the DD/S responses involved
reaction to the establishment of the recommended Career De ppmenteBoard.
There was a fairly wide variety of modifications suggested
and there were descriptions of ways in which the plan might be made to work.
The consensus was, however, that although some central body was needed to
be responsible for career service matters in the Agency and although some
mechanism was required for facilitating lateral rotations and appointments
between individual services, this entire problem needed further study.
Above all, it was felt a clarification was needed of the advisory vs.
command role such a body would have.
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26 may 1960
) (ORA1Wt.L FOR: Director of Central Intelligence
SUBJECT : CIA Career Service
1. This memorandum is in response to your request that the Director
of Personnel inform you of the views and recommendations of the Deputy
Directors concerning Career Service. Specific recommendations are made
in paragraph 4+.
2. The Survey of Career Service prepared by the Inspector General
has been reviewed by the three Deputy Directors and has been discussed at
the Career Council. The Deputy Director (Intelligence),, Deputy Director
(Support), and the Director of Personnel have submitted written statements
on this subject. In the original drafting of the Inspector General's re-
port, in developing these statements and in preparing for the Career Coun-
cil meeting a broad canvass of opinion has been Wade, with the result that
at no time since the establishment of the Agency have we been as well in-
formed as we are today concerning the problems and challenges that exist in
the area of Career Service administration.
3. The recommendations of the Career Council which are herewith sub-
mitted for your approval are more conservative than those proposed by the
Inspector General. There are several reasons for this. The Deputy Dir-
ectors and other Council members, while agreeing that the Agency has thus
far failed to achieve a fully satisfactory solution to the problem of
career development, do not believe that the extent of our failure is as
great as that described by the Inspector General. Indeed, it is felt that
we can take pride in the ixgprove3aents that have been made during the past
six years. The Deputy Director (Plans) and Deputy Director (Support) feel
strongly that Career Service administration should follow command lines
with only such modifications to this concept as have thus far been intro-
duced and tested. The Deputy Director (Intelligence) While being in sub-
stantial agreement with their position would favor some degree of lessening
of command jurisdiction in the interest of career development. All three
Deputies are against establishing a Career Development Board independent of
and at a level higher than the Director of Personnel, and they oppose the
concept of occupational Career Services. Finally, wile recognizing that it
may be possible and advisable to attempt to set apart and treat differently
a "hard core" Career Service at some time in the future, it was agreed that
this is not the time for such a move.
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4. With specific reference to the recoiendations of the Inspector
General the Career Council reached the following conclusions and recom-
mendations:
a. The Career Council and the Supergrade Board. The Career
Council did not agree that these bodies be discontinued but
proposed instead that they continue to perform the work presently
assigned to them. The transfer of their functions to an Agency
Career Development Board is therefore not recomended.
b. Career DMlo went Board. The Council did not agree to
the establishment of this Board as proposed by the Inspector
General. It does recoamnead the appointment by each Deputy of a
Career Development Officer, the exercise by this officer of
authority granted to him by the Deputy in the furthering of the
career development of individuals within that component, the for-
mation under the cognizance of the Career Council of an Agency
board c uposed of the three Career Development Officers and
chaired by the Director of Personnel which will develop Agency
career development policies and arrange, with the concurrence
of the Deputies concerned, for the movement of individuals froth
one major component to another in the interest of career devel-
opment. It is understood that failing such concurrence the Dir-
ector of Personnel may appeal the decision of one or more
Deputies to the Director of Central Intelligence.
c. The Selection Board and the CIA Career Staff. The Council
concur= in the Spector General a reconmendation that the
Selection Board and the Examining Panels be discontinued and that
selection of individuals into the Career Staff become the respon-
sibility of the Heads of Career Services, The five-year service
requirement for membership in the Career Staff, as proposed by
the Inspector General, was not considered advisable. Inste",
theme was agent (1) to retain a minimum three-year waiting
period,: and (2) to establish a minimum age requirement of 25
years.
d. Career Services. It was the consensus of the Council that
the basic Career Service structure as it now exists should
be retained and that no attempt be made to convert to occupational
services as proposed by the Inspector General.
e. Individual Career P2anniog. The Council ac ed the In-
spec for General a proposal to reaeind discontinue 25X1 A
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the Career Preference Outline, and to substitute individualized
planning for those persons who ma be expected to grow and
develop.
f. CIA. Career Service Brochure. The Council agreed to the
proposal of the pector General to prepare and distribute
to all ea,loyees a brochure explaining the purpose and objectives
of the Career Service program and the methods of i~lementation,
it being understood that publication would be deferred until
after the first major reduction in force is effected.
5. It is recommended that the conclusions and recommendations of the
Career Council be approved and that the Deputy Director (Support) be in-
structed to revise and publish regulations and other issuances implementing
then.
Signed
Gordon M. Steuart
Director of Personnel
The recc mendation in paragraph 5
is APPROVED
Signed 3 October 1960
Allen W. Dulles Date
Director
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DISCUSSION AT CIA CAREER COUNCIL MEETING
(Paraphrased from Transcript)
14 November 1960
1. Screening of nominees for external awards (Rockefeller Public
Service Awards, National Civil Service Awards, President's Award for Disting-
uished Civilian Service, etc.): It was agreed that the Development Board
might screen such nominations before they were submitted to the Career
Council for review and recoamend.ation to the Director of Central Intelligence.
2. The Director of Personnel then reported upon the as-yet-not acti-
vated Development Board. He pointed out that the Board had been approved as
a means to remedy an agreed upon deficiency in the Agency program for person-
nel development. And he pointed out that the Inspector General's recent
report on Training in CIA makes major observations on Agency weaknesses in
the areas of mid-career and senior officer development. It was noted that
the specific recommendations in the IG's report on Training appeared not to
recognize the imminent establishment of the Development Board and the fact
that training policies and programs are an essential and inseparable part of
the Agency's personnel development program. The Director of Personnel then
made the general proposal that the Career Council assume responsibility for
the development of the total Agency personnel development program and that
the, efforts of the Offices of Training and Personnel toward the single objec-
tive be melded by appropriate devices under the aegis of the Career Council.
More specifically, he proposed the establishment of two bodies, subordinate
to the Career Council and tentatively designated as the Personnel Development
Board and the Training Development Board. The same individuals would serve as
members of both groups and the Chairmen would be the Director of Personnel or
the Director of Training as appropriate to the matters to be discussed at any
particular meeting. The Council expressed interest in this proposal and re-
quested that it be more clearly defined in a paper to be circulated for their
further consideration. It was agreed to defer activation of the Development
Board until this proposal had been further considered.
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DISCUSSION AT CIA CAREER COUNCIL METING
[Extracted from Notes of Meeting
25 May 1961
25X1A9a
The Council agreed that the Personnel Development Board should
be activated immediately. The members are: The Director of
Training, the Director of Personnel, DDI), 25X1A9a
(DDP), and (DDS). At 25X1A9a
its initial meeting, the Board will review and revise the present
draft regulation to define its objectives and charter.
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Inspector General's Survey of the CIA Training Program
Pages 5-6
Paras. 3 & 4 (Concerning training and career development)
3. Taken as a whole, CIA training does not yet reach extensively
nor systematically into the area of advanced training of career employees.
To an important degree training is a derivative of organizational policy in
the broad field of personnel management and since the Agency has not yet
reached a consensus on the place of such tools as job standards, rotation,
competitive evaluation, mid-career training, senior executive training and
sabbaticals, there is no obvious and self-evident career training pattern
instilled in the minds of either the Agency's staff employees or its managers.
4. The absence of a general conviction on the place of training
in career development is also explained by the fact that the first generation
of intelligence officers acquired their skills and know-how on the job and
with minimum exposure to formal training. Their integration into a training
system has been and is apt to remain on a catch-as-catch-can basis pending
the evolution of the stronger personnel management tools referred to above.
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Page 20
Para. 7 (Concerning executive training)
7. There is evidence enough of deficient management practice
in the Agency, even though the Agency's over-all performance has undoubt-
edly improved with increasing maturity. There would of course continue
to be cases of deficient practice were all managers formally trained in
management techniques and policy. The Agency, however, has yet to take a
firm position on the need for such training in preparing its executive
personnel to exercise their responsibilities. The experience of the
Department of State suggests what may lie ahead for CIA on its present
course. Only in 1956 and under strongest pressure did the Department
finally launch a plan for mid-career training for its Foreign Service Offi-
cers of ranks 3, 4 and 5, to run twelve weeks and to include two weeks
devoted to case studies in executive management.
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Pages 36-38
Para. Cig. Present State of the Training Curriculum
(1) The content and balance of the curriculum now offered at
25X1A6a and at headquarters reflects the current situation in training
doctrine. There is marked instability in content, scheduling, and enroll-
ment.
~5X1A6a
25X1A6a
25X1 C
25X1 C
25X1A6a
(2) Various operating offices have experimented with permissive
job standards outlining minimum formal training judged desirable for various
basic categories of assignments. Thus far, however, these have had relatively
limited effect in determining who receives what training preparatory to a
given assignment.
(3) where the enrollment of JOT's for basic training
is controlled, curriculum problems include: (a) insufficient time to fit
tradecraft and more specialized operations training into a crowded schedule,
and (b) concern that the benefits of training will be lost before the indi-
vidual has opportunity to apply them in practice, or that the content is
meaningless until he gains operating experience. Many operating officials
express the opinion that the curriculum still does not train in
investigative technique to the degree of proficiency that
should be required of any case officer. The students themselves testify
that tradecraft training in
for example, is substantially lost over the intervening two years before
overseas assignment.
(4) The junior officer graduating faces a sizeable
and growing list of advanced training courses as well as the formidable
demands of language and area training limited only by the specialization
dictated by his first assignment. At the present time JOT's, both in appren-
tice status and permanently assigned to operating offices, comprise less than
10 per cent of the total DD/P professional personnel for whom the advanced
operations courses have been designed. Yet given both JOT and non-JOT sources
of possible demand for training these courses have not drawn and are not
drawing sufficient enrollments to sustain themselves. The typical pattern
for any new course has been a mildly coerced adequate enrollment for the first
presentation, then a steady decline with intermittent cancellations when
student numbers have been too small to promise reasonable classroom discussion
or to justify tying up training instructors and facilities. OTR officials
cited eight situations of this kind in a memorandum on the subject in December
1958. The Chief Instructor for Headquarters Operations Training reported in
May of this year that there had been no improvement in the intervening
eighteen months.
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e L+fN 4 t` M
Pages 36-38, Para. Clg. (Continued)
(5) The explanation of DD/P line officers concerning low en-
rollments are varied. Considerable scepticism is expressed about training
for training's sake. The present generation of executives has had minimum
formal training and believes firmly in learning on-the-job under exper-
ienced senior officers. Many believe that the training of their subordin-
ates is now reaching the saturation point and that small enrollments are
inevitable. Operational priorities and current ceilings on manpower cause
many branch chiefs to insist that they cannot release There is opinion,
training without increase in T/O for that purpose. n
but no consensus, that sanctions will be required, such as those now being
experimented with in the Foreign Service, to solve the enrollment problem.
These may include a more powerful central personnel management to oversee
personnel assignment decisions, the development and enforcement of job
standards, and a policy that makes promotion contingent on satisfaction of
training requirements.
(6) The problem derives in part from faulty communication between
the authorities concerned. The line command will not acquire indoctrination
in the values of formal training without more awareness of training programs
and policies. Confidence in the curriculum and reasonable enrollments will has not appear overnight and certainly cannot be achiyecree. apst but
25X1A6a briefed parties of line commanders on - activities
the contacts have been too brief and intermittent. In spite of all of the
hazards of bureaucratic procedure, OTR should experiment with the concept of
Boards of Overseers composed of senior grade officers from the Directorates
rotated to the assignment for relatively brief periods of three to six months,
who will meet regularly with the training management and faculty for detailed
briefings and project investigation of current problems. The problem is one
of leadership and it rests with the Director of Training and the Deputy
Directors of the Agency.
* * * *
Page 40
(e) DTR experiment with the concept of a board of overseers
composed of senior grade professional officers as a means to improved com-
munication with and indoctrination of consumers, and to promote the develop-
ment of more effective policies on curriculum and enrollment.
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Pages 86-87
Para. Fad. Placement of JOT's
(1) The JOTP exercises substantial freedom in the assessment and
allocation of JOT's to specialized training and in their placement in operating
offices for on-the-job training. Part of the explanation lies with the Agency,
part with the JOT's themselves.
(2) Few if any Agency components have successfully projected man-
power requirements several years into the future, either in terms of numbers or
special qualifications. Any projected division requirement for a given number
of officers with specific language, area, or other competence may have doubled
or evaporated three years hence depending on a host of possible developments.
in consequence, operating offices have been forced to limit their specifications
to the general qualifications of character, educational performance, linguistic
aptitude and personality. The JOTP has employed educational and psychological
screening as aids to JOT selection but in the last analysis has relied on its
collective judgment based on long experience.
(3) The Program has also shown considerable tolerance toward the
preferences of the individual JOT, both at time of selection for specialized,
e.g., case officer, training and later in the selection of a job assignment.
Some men with excellent qualifications for the DD/I and DDS can regularly be
expected to find the DD/P more attractive. Thus it is not certain at this stage
that the new DD/I and DD/S quotas can be filled. There is an understandable
gravitational pull to the DD/P career but in addition there is a subtle in-
structor and student climate that rates selection to the DD/P as success and
allocation to the other Directorates as "second rank" performance. In some in-
stances this climate is generated even in the recruitment stage. The JOTP, QTR
and the Office of Personnel must combat these prejudices with vigor if they are
to cater successfully to the basic needs of the DD/I and DD/S.
(4) The JOTP and. the Directorates are overly isolated from each other
and communication on junior officer training policies at the intermediate command
levels is clearly deficient. One answer, as with recruitment, is to rotate line
officers to serve on JOTP panels that make basic decisions so that their advice
on placement policy will be assured. The JOTP will acquire a convincing base for
its judgments and the line officials will return to their regular duties with in-
creased awareness of training and personnel development policies.
Page 92
(b) The DTR establish a JOT Selection Panel composed of line officer
representation from the three Deputy Directorates together with appropriate rep-
resentation from the Office of Personnel and Training. The Chief, JOTP, should
chair the panel.
(d) The DTR arrange for the participation on a rotational basis of
line officer representation from the three Deputy Directorates in JOT? placement
panels.
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Para. 1+ (Concerning need to relate training to career planning)
4+. A third major weakness is the failure to closely relate
training to career planning and management. The absence of long range
career planning was observed in the IG's study of the Agency's Career
Service Program and the knowledge gained in the course of this study
serves to underscore the need for such planning. Without it a sound
,training program cannot be developed. Training is costly and the Agency
can afford the investment only if it can be assured of an adequate
return.
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Pages 147-14
Para. D. Mid-career Training
1. The need for some form of training at the middle career level
is acknowledged by trainers and consumers alike but there is little agree-
ment on the nature, extent or even timing of such a course. Mid-career
training generally throughout government and industry is accepted as a part
of an overall program of the proper preparation of people to perform effect-
ively in their assigned functions. The Foreign Service Institute, for
example, offers a course for Foreign Service Officers at the FSO 3, 4, and
5 levels which is designed to "encourage the development of a broad and
integrated professional philosophy that will enable the officer to function
with a more acute awareness and a deeper understanding of the essential
character and role of his profession." (It should be noted that the 12 week
course includes two weeks devoted to executive management.) While this
purpose may not be completely appropriate to the Agency, it doe? contain
some of the essential characteristics applicable to any program of training
at mid-career.
2. Before advancing suggestions for the purpose and nature of
such training a definition of mid-career should be agreed upon. The middle
point of a man's career will, of course, vary with the individual and will
be influenced by circumstances both favorable and unfavorable. An age and
grade projection of what may be considered an average career would take this
form:
GS Grade 9 11 12 13 14 15
Age 25 30 35 40 45 50
In actual practice intervals between promotions in the lower grades may be
shorter and longer in the upper grades. While this projection admittedly
is rather arbitrary, it seems reasonable to assume that thee young time he neofhes
25 entering the service should aspire to grade GS-15 by that grade eace
50 years of age. If he does not his chances attaining h is not rthere-
after diminish rapidly. We realize that 25 years
by many as a full lifetime career and that GS-15 is not the full limit of
grade levels available. The projection may be extended thro ghGS 18 ate
age 65 without materially altering the relationship of age and
number of supergrade positions always will be limited and since we are
seeking something having application to the majority of officers we believe
it more practical to use the projection shown above.
3. The middle point in grade falls between GS-12 and 13, in age
between 35 and 40, and in length of service between 10 and 15 years. This
point appears to be most appropriate for a number of reasons. At the GS-13
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Pages 147-149, Para. D. (Continued)
level an officer usually is expected to assume major supervisory responsi-
bilities for which he should be thoroughly prepared. One of the deficiencies
noted in the current training effort is the inadequacy of proper preparation
of employees assigned managerial responsibilities. Grade GS-13 also is in
many areas of the Agency a crucial point; it is a "break-through" level
which distinguishes between journeymen and senior officers. It is in effect
the gateway to more senior positions and one of the more difficult to
penetrate.
4. The age bracket of 35 to 40 also is very significant. It is
the stage at which the individual becomes more mature, he is more aware of
the full extent of his responsibilities both at work and at home and his
concern with his future is greatly sharpened. It is no coincidence that the
average age of professional officers in grade GS-12 and over who leave the
Agency for some other occupation is 39.4. It is frequently a turning point
in a man's life.
5. In terms of years of service this middle point is most appro-
priate also. The officer has served his apprenticeship and at least seven
to twelve productive years in his specialty. He probably knows all there is
to know about his job but has had little opportunity to participate in or
learn about other activities. The danger of atrophy is greatest at this
point.
6. A mid-career training program designed with these factors in
mind should have as its purpose: (a) to prepare officers to assume broader
responsibilities particularly in the field of command; (b) to refresh and
rekindle their motivation in the interest of the government and the intelli-
gence service, and (c) to broaden their outlook of the Agency's mission
through a better understanding of the interrelationships of its many parts.
7. We anticipate some initial difficulties in the development and
scheduling of a mid-career program but as employees' promotion and growth
rate stabilizes there should be a fairly uniform progression of officers
through this mid-career stage which will provide standard, almost routine
attendance for a regularly scheduled course. The seminar form of approximately
12 weeks is favored by most and would appear to be appropriate to the purpose.
It is recommended that:
The DCI authorize and direct the establishment of a mid-career
training course for officers at the GS-12 and -13 level in order to prepare
them for broader responsibilities particularly in the field of commend, to
refresh their motivation in the intelligence service and to broaden their
understanding of the interrelationship of Agency functions.
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Pages 150-15~+
Para. E. Senior Officer Training
1. One of the readily identifiable problem areas in the Agency
today is the pronounced shortage of senior level officers thoroughly exper-
ienced in all aspects of the intelligence profession capable of understanding
and effectively dealing with complex Agency-wide and inter-agency problems.
The Agency finds itself in this circumstance partly through its historical
evolution in which some components descended in unbroken line from World War
II organizations; partly because the organizational structure has fostered
the growth of three semi-autonomous sub-divisions;ppartly because
security concept of coWpartmentation has been permitted
l
policy approaching "apartheid"; and partlybuseheprssuofvoperrational
and functional demands placed on the Agency since its inception
the direction of its great energy to the rapid development of people to do
specific jobs well and defer to some later date the development of people who
can do all jobs well. There also enters here some element of the prodigal
use of talent because it is plentiful, the substitution of numbers of people
to make up for lack of broad individual competence and the resorting to
group judgments in place of executive skill.
2. Preparing individuals to assume and effectively discharge the
responsibilities of senior management is more a problem of development than
formalized training although the latter has a definite place in the scheme
of things. As we pointed out in the Inspector General's report on the Career
Service Program, the absence of an organized method of career development has
seriously hampered the proper preparation of officers for key positions and
some sound long range planning must be instituted to meet this need. We
still are hopeful that such an effort will be successful in the near future.
For the present, however, there is an immecLiate ever fiinggspos-
sible to improve the effectiveness of today's staff of senior
we
those to be selected in the next few years to come. For this purpose
suggest a senior officer training program.
3. The objective of a senior officer program may be briefly
stated in these terms: to develop more officers capable of formulating and
evaluating comprehensively policy concerned with intelligence in U. S.
Government. This objective is sufficiently broad to encompass
affairs
of the intelligence profession, the internal management of Agency all and the interrelationships
ymwith the intelligence community and
oof the f the Agency
the policy making eiements
4 The level at which this program is aimed should not be lower
t
than GS-15 although a case can be made to include selected individuals is atcers
the GS-14 level. It should be regarded as the preparatory phase
entering the final stages of their careers with the Agency and therefore
provide a rounding out of their earlier experiences and training.
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IrAw
Pages 150-154, Para. E. (Continued)
5. The greatest benefit of this program is to be derived from
the interchange of opinions and ideas through the exploration of the entire
spectrum of Agency and community problems. For this purpose a combination
of seminars and case studies with a minimum of orientational lecturing
would be the most productive. A mixed enrollment of DD/P, DD/I, and DD /S
officers could profit by exposure to each other's problems. A budget officer,
for example, might make a solid contribution to a discussion of counter-
intelligence operations, a case officer might speak with conviction on in-
formation storage and retrieval, and an analyst may offer valuable ideas on
logistical matters. Executive management should be stressed at this level
but no subject, operational or administrative, should be neglected.
6. A senior officer program to be most effective must be allotted
a period of time adequate to the fall development of its objective. A
similar program, though on a somewhat broader scale, conducted by the Foreign
Service Institute runs for nine months. We do not contemplate so extensive a
program to meet Agency needs at the present time. As the program evolves in
the future it may be found desirable to invite attendance by senior officers
of other intelligence agencies in which event a longer course might be justi-
fied. For the initial effort at least and until experience can be gained we
believe a course of about four months would be most effective.
7. In magnitude, taking into account the problems of administra-
tion and technical methods of handling such a program, it is suggested that
enrollment be limited to not more than 1+0 officers at one time. The program
should be conducted at least twice annually although it is believed possible
to run two courses concurrently if necessary. A reasonable goal would appear
to be the participation of 80 to 100 officers each year.*
8. The question of location must also be considered. Ideally,
from the academic point of view, an atmosphere relaxed and free from the
tensions of normal Agency activities would provide the best surroundinggss for
25X1A6a undisturbed concentration and thought. This would point t
ouat-
most appropriate Sepabut rfromcfamilysforraniextended periooddoof time,mwhile
able obstacles. . Separation
Tote: At the present rate of promotion about 50officerswwill senter
nteritheat
GS-15 level each year. It is anticipated that promotons
this rate for the foreseeable future. This will permit ultimately scheduling
the senior officer program semiannually with an attendance of about 25 at
e to
each session. For few years,
present staff as well must be elevated
part
accommodate a large
officers.
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Pages 150-154, Para. E. (Continued)
tolerated by the JOT, would be strongly resented by the senior officers.
Unlike the military services Agency facilities do not provide 25X1A6a
for students' dependents and it would be economically unfeasible for the
Agency to pay for off-base quarters even if the local market could meet
the demand. It appears therefore that there is no alternative at present
to conducting the program at headquarters with the attendant disadvantages
of proximity at home offices and the ever present danger of interruptions
and distraction by continuing contacts with working colleagues and
associates.
9. The success of the program can be assured only by highest
level direction and proper planning. Officers who are to participate must
be released from regular duties for the full duration of the course and re-
quired replacements arranged for well in advance so that their functions can
be carried on in their absence. It is our opinion that all officers should
be required to participate upon reaching the GS-15 level but if this proves
to be impractical, at least for the present, then selection should be based
on merit, accomplishment and potential. Appointment should be regarded as
a reward for achievement and an acknowledgement of superior ability opening
the way to the highest levels of executive management.
10. Other than the salaries of the participants no extraordinary
cost is contemplated for this program. It should be administered by the I3TR
who will be expected to provide supporting services. In the initial formu-
lation of the program the services of technical experts will be needed but
instructors as such can be dispensed with. Seminar and discussion leaders
can be drawn from the Agency at large or, better still, from among the par-
ticipating officers themselves. None of the customary testing and evaluation
practices are called for. It may be desirable to enlist and pay for some
expert outside talent to handle such subjects as advanced management but the
cost for such services would be modest when compared with the cost of full-
time instructors.
11. On a number of occasions in the past suggestions have been
made to establish an Intelligence Staff College along the lines of similar
military institutions. Some such proposals have been reviewed in the process
of this study and much thought has been given the matter. There is much to
be said in favor of some form of staff college for intelligence officers but
it is believed that the Agency is not yet ready for A
senior officers' program as outlined herein may
establishment of a broader and higher level school but to meet the Agency's
most urgent need this program should be developed without delay.
It is recommended that:
The DCI authorize and direct that a senior officer program be established
to develop more officers capable of formulating and evaluating comprehensively
policy concerned with intelligence in the U. S. Government generally in
keeping with the outline described above.
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COMMENT CONTAINED IN MEMORANDUM FOR DEPUTY DIRECTOR (SUPPORT)
FROM DIRECTOR OF PERSONNEL DATED 24+ October 1960
6. The major conclusion that I derive from the survey is that there
is a need for a mechanism which on a continuing basis will unify at a
sufficiently high command level all officials who do or should have the
knowledge to bring into balance the operational, personnel, and training
programs of the Agency. I support this conclusion by referring to the
recommendations made in the report. Analysis quickly reveals that almost
every recommendation requires that officers concerned with Operations,
Training, and Personnel enter into joint study of a problem or an alleged
deficiency. The hope and expectation expressed is that there will be
objective consideration of Agency needs, a reconciliation of conflicting
views, and above all unanimity of determination among autonomous components
to carry out a determined course of action. I conclude that the most
important single action necessary to the melding of Agency operational,
personnel, and training programs is the establishment of such a primary
mechanism just below the level of the DCI. I further submit that the CIA
Career Council (under another title if desired) is the type of mechanism
that can bring about concerted planning and reconciliation of conflicting
views and can also inject through existing command lines the executive in-
structions that translate theoretical policy into practice. In urging
that the CIA Career Council be used as the Agency with
the many facets of the training program, I interrelationships of the personnel and training programs.
7. As a result of a recent survey by the IG on Career Service in
CIA, a recommendation was made to establish an Agency level Personnel
Development Board. The CIA Career Council recommended to the DCI that such
a Board be established under the aegis of the Council. This Board would
presumably concern itself with the problems, policies, and programs involved
in the development of CIA personnel to meet personnel requirements at all
levels of management but especially at the middle and senior levels. This
specific recommendation was approved by the DCI.
8. We are now considering the IG's report on training m n CeCIA. Among
the specific recommendations are two which urge p g career
and senior officer training. It is obvious that when we speak of middle
career and senior officer training and of personnel development we actually
concern ourselves with but a single concept. I have concluded, therefore,
that the preferred solution to the problem of developing a program
that is in balance with the operational and personnel i management pfgogrogs
consid-
eration the Agency is to incorporate the training program
eration of the CIA Career Council. The exact organization is not important.
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Comment Contained in Memo for DDS from D/Pers dtd 24 Oct 1960 (Continued)
I would suggest, however, that the Career Council be preserved in name and
that two subsidiary boards be established under its supervision as follows:
a. A Personnel Development Board to concern itself with the
development of policies, programs, and the mechanics of a system for
personnel development.
b. A Training Program Development Board to concern itself with
the development of policies, programs, and the mechanics of operating
and controlling the total Agency training program.
Functional representation on the Boards would be essentially the same as
that of the Career Council. The Boards themselves, or at their discretion
responsible functional offices, or ad hoc task forces, or even standing
subsidiary committees, would study problem areas and develop and recommend
policies and programs. Progress reports, policy impasses, and ultimately
specific proposals would be submitted to the Career Council for unanimous
approval, modification, or redirection. As appropriate, specific programs
or major policy determinations would be referred to the DCI for decision.
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ACTION ON IG'S RECOMMENDATIONS: MFMt7RANDUM FROM DEPUTY DIRECTOR (SUPPORT)
TO DEPUTY DIRECTOR OF CENTRAL INTELLIGENCE
ACTION ON IG'S RECOMMENDATIONS
Memorandum for Deputy Director of Central Intelligence from Deputy
Director (Support) dated 30 November 1960
Memorandum for Deputy Directors (Support), (Plans), (Intelligence),
and the Inspector General from Deputy Director of Central Intelligence
dated 25 March 1961
Recommendation: Tab 6 (DD/S Memo), page 40 of Report
DTR experiment with the concept of a board of overseers of senior grade pro-
fessional officers as a means of improved communication with and indoctrination
of consumers, and to promote the development of more effective policies on
curriculum and development.
DDS Comment
While the Director of Training and I both are willing to experiment with the
concept of a board of overseers, we are not convinced that such a board is
necessary. We shall be interested in learning the views of the 1)D/P and DD/I.
I believe, of course, that training policies and programs form an essential
and inseparable part of the Agency personnel development program, including
mid-career and senior officer development. The Director of Personnel has
recently proposed that the Career Council be responsible for the total Agency
personnel development program, and that the efforts of the Office of Training
and the Office of Personnel toward the single objective be united under the
aegis of the Career Council. Because the forthcoming Career Development Board
may be a mechanism by which the Career Council ensures that training policies
and programs are incorporated in the total development program, the Council has
deferred activation of the Board as it was originally conceived. The Director
of Training and the Director of Personnel believe that their programs can be
effectively integrated and implemented through the functioning of the Career
Development Board. They agree, for example, to alternate the chairmanship of
the Board between them in accordance with the nature of the matters before the
Board. This type of arrangement to blend the efforts of these two support
offices under the aegis of the Career Council is, in my opinion, an example of
realistic planning for Agency use of the Director of Training and his resources.
DDCI Action
Approved with action to DTR in close cooperation with DDP and DDI
with due consideration to the ties between the board of overseers and
the forthcoming Career Development Board.
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Recommendation: Tab 20 (DD/S Memo), page 92 of Report
The DTR establish a JOT Selection Panel composed of line officer
representation from the three Deputy Directorates together with appro-
priate representation from the Office of Personnel and Training. The
Chief, JOTP, should chair the panel.
DD / S Comment
I agree with the principle that the Deputy Directorates, through repre-
sentation, should play a role in the selection of JOT's. I do not,
however, believe that it is necessary to establish another, separate,
JOT Selection Panel for this purpose. Rather, I would strongly prefer
to have thoughtfully selected, experienced representatives of the DD/P,
DD/I and DD/S serve rotational tours of duty as training officers on
the JOTP staff. Here, as I have set forth in my introductory remarks,
these officers can most effectively participate in the JOT selection and
placement processes.
DDCI Action
Aroved.
Recommendation: Tab 22 (DD/S Memo), page 92 of Report
The DTR arrange for the participation on a rotational basis of line
officer representation from the three Deputy Directorates in JOT?
placement panels.
DD/S Comment
Concur, but I believe that this can be accomplished most effectively and
efficiently by Deputy Directorate representation on the JOTP Staff, on
a rotational assignment basis, as proposed in Tab 20.
DDCI Action
Approved.
-r
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Recommendation: Tab 34+ (DD/S Memo), page 11+9 of Report
The DCI authorize and direct the establishment of a mid-career training
course for officers at the GS-12 and -13 level in order to prepare them
for broader responsibilities particularly in the field of command, to
refresh their motivation in the intelligence service and to broaden
their understanding of the interrelationship of Agency functions.
DDS Comment
Concur. OTR has done some preliminary research and planning for such
a course at this level, such as management and overseas effectiveness
training. The Director of Training has been reluctant to push a mid-
career course, however, while training, is still approached on a
permissive basis.
The majority of Office and Staff heads of DDS have signified their
agreement with the need and utility of a mid-career course as envisioned
by the IG. If the other Deputy Directorates show a similar interest,
and if this course shall be attended on a "planned" basis, I shall
request OTR to move ahead with their planning.
* * *
Nevertheless, I agree that Agency doctrine and problems of command,
management, personnel administration, and supervision should be given
due weight in the proposed mid-career course.
DDCI Action
Approved.
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Recommendation: Tab 35 (DD/S Memo), page 154 of Report
The DCI authorize and direct that a senior officer program be established
to develop more officers capable of formulating and evaluating com-
prehensively policy concerned with intelligence in the U. S. Government
generally in keeping with the outline described in the IG survey.
DDS Con rent
I concur that the Agency will benefit from a senior officer training
rog am, but I believe that we must give this recommendation careful
and deliberate study. I am not at all sure that we should try to set
up a "CIA Senior Officer Course" comparable to that offered at the
National War College, for example. First of all, such an undertaking
cannot help but be very expensive to administer and to operate, and OTR
advises that it does not now have the staff or the facilities for such
a course.
I feel that we can do more in this area, and an confident that there
can be worked out a comprehensive program which will meet the general
needs of senior executives as well as the peculiar needs of our
senior professional specialists.
DDCI Action
Approved with the modification that a senior officer program
shall be drafted and submitted for approval rather than
established at this time.
f-% rN
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