PERSONNEL RECORDS HISTORY PROJECT

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP81-00314R000600150001-4
• Release Decision: RIPPUB
• Original Classification: C
• Document Page Count: 80
• Document Creation Date: December 14, 2016
• Document Release Date: October 15, 2002
• Sequence Number: 1
• Publication Date: January 11, 1971
• Content Type: MFR

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11 January 1971
25X1A
MEMORANDUM FOR THE RECORD
SUBJECT: Personnel Records History Project
1. This afternoon I reviewed with Mr.O his progress 25X1A
toward completion of the referent history project by the 31 January
deadline.
2. Mr. 0 has quite a bit more to do, but feels that he
can probably meet the deadline. He is trying to pull together
the pieces of history information to form a consolidated history
of personnel records in CIA.
25X1A
Orig. - Subject Folder
1 - Chrono
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r ffice Personnel
Historical Officer
PI Off rAr
GRUUP i
00060?,61
downgrading a?d
da6lassititatinn
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In order not to become bogged down in following the countless
activities connected with personnel placement, certain KEY functions
will be traced; they are: initial selection and assignment of
personnel; internal recruitment, placement and reassignment; the
review and appraisal of official personnel actions; and the role of
the professional placement officer.
The methods of operation and the types of organization employed
by the Office of Personnel to accomplish the placement function have
undergone continuous change. Regardless of personalities or
organizational politics that were involved in changes at one time
or another, the main concern seems to have been: How can we select,
place and manage our people better and who should do it?
This paper treats these two questions and their various answers
from 1946 to 1967. It is a history of the Placement function and,
therefore, it is not a strict chronology of organization. However,
a chronological narrative is used; it is thin in parts due to changes
of emphasis in the placement functions and due to lack of written
source.
Several individuals who had been active in placement matters
during the Agency's life were interviewed to fill in gaps; these
persons were extremely cooperative. Also, placement functions were
often shared, overlapped or duplicated because of the overt-covert
split and other reasons.
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25X1A
1. 194,6 - 1950
As of July 1946 in CIG, a centrally placed unit performed
personnel functions under the Executive Staff for Personnel and
Administration (P&A). The Personnel Division was first headed by
and in September 1946 by Mr.
25X1A
Recruitment and Placement were combined as a single unit. In July
1947 the Executive for P&A was renamed the Executive for Adminis-
tration and Management (A&M) with Personnel established as a branch
along with the other Support branches.
Meanwhile, since 1946, OSO had been forming its own administra-
tive staff, which by mid-1948 was named the Administrative and Support
Staff (A&S). Under it were the Personnel Division and Recruitment
and Placement in one section. At this time OSO and the Office of
Policy Coordination (which also had its own staff), proposed a unifica-
tion of OSO and OPC units. This proposal was opposed; in September
1948 the disagreement led to the formation of a single Executive for
Administration.
Therefore, under the Executive, a single group of five staffs,
each subdivided on an overt-covert basis, was formed. It represented
a compromise between centralization and decentralization. And then,
in October 1949 a fundamental reorganization established completely
separate staffs for supporting each side of the house: the
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Administrative Support Staff (A&S) to service overt activities; and
the Covert Support Staff (CSS) to service the covert components. A
few months later CSS was renamed the Special Support Staff (SSS).
The former Personnel Staff was split into two divisions, one in each
of the new Support Staffs. Each personnel division established
recruitment and placement sections or branches. Overall, an Executive
Staff was established to provide policy guidance to the Executive of
1
the Agency.
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PLACEMENT - Beginning (The People)
In the original central personnel unit, the leadership of the
procurement and placement function was provided by Andrew E. Van
Esso. Mr. Van Esso was succeeded for a short time by Mr. George
Meloon, who eventually became Personnel Director, and is now
Director of the Office of Logistics. He was succeeded by
25X1A
O
With establishment of separate personnel staffs for overt and
covert operations, the overt placement was placed initially under
25X1A 25X1A
Mr. and later under Mr. who is
now Chief, Control Division, Deputy for Plans and Control, Office of
Personnel. The covert placement function was first headed by Mr.
25X1A 25X1A
and then by Mr.
Chief, Logistics Services Division.
FUNCTIONS, PROBLEMS AND ACCOMPLISHMENTS
"The placement units, when operating as a combined procurement
and placement activity, were almost totally concerned with obtaining
and initially assigning personnel. Even relieved of procurement
activity, the initial placement activity represented so large a volume
of work that subsequent review to determine whether initial placements
were satisfactory or not was impossible. It is probably in this area
that the Agency pays most heavily for sacrificing a well-rounded pro-
gram to the demands of recruitment. Especially in the face of
25X1A
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uncertainty as to the types of people needed for various positions
it becomes important to evaluate the success of placements to determine
which kinds of qualifications have been more successful. Also it is
probable that a high number of potentially-qualified personnel were
lost to the Agency because of job dissatisfactions which might have
been discovered through placement follow-up. Losses in terms of per-
sonnel assigned to positions which were performed adequately but were
not best suited to individual capabilities are unmeasurable but again
may be reasonably estimated in substantial number."3
This statement in an earlier historical paper written by the Per-
sonnel Staff in mid-1952 cites most of the basic problems of the Per-
sonnel Office was to continue to deal with concerning the placement
function to this date. Other overall problems were: defining the
proper role of placement officers in dealing with these problems;
the contraction and expansion of manpower ceilings; and the overt-
covert split in organization.
RECRUITMENT AND PLACEMENT -? COMBINED FUNCTION
In these years, recruitment and placement were very closely related
organizationally and in practice. Recruiters served as placement
officers and the reverse was also true. The main task, according to
25X1A Mr.
was to determine which operating units needed what quali-
fications in their people and how many people. The next obvious task
was to find these people. After finding his candidate, the recruiter
was often his own placement officer. After spending some time in the
1
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field gathering applicants' files from interviews, he would return
to Headquarters and begin "selling" his applicants to the operating
units. Placement officers were overburdened with record keeping and
details, having little time to make personal contact with the offices
they serviced.4
Those who screened walk-ins and reviewed applicant files were
non-professional placement officers with inadequate knowledge of the
jobs they were filling. The Applicant Files Branch was crowded and
behind in coding applicants by qualification.5
In this period the placement officers were given authority to
review and sign off personnel actions on all types of activities from
promotions to reassignments. Processing personnel actions was not yet
refined; this forced the placement officer to spend much time in
clerical tasks and record keeping. Fitness reports were reviewed by
the placement officers, but little time for an adequate review existed.
Also, in 1947 a placement follow-up interview program had been
established by Mr. Van Esso. The purpose was to get to the new employee
within three to eight months after his initial employment to determine
the propriety of the initial placement. As the historical statement
(quoted above) of 1952 stated, these interviews could not be performed
regularly. The pressure for recruitment and initial placement was
too great and was exacerbated by difficulties in communications with
operating units and lack of control over the flow of applicant files
through the selection process. Another frequent complaint was that a
backlog of correspondence with applicants in process which, in many
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cases (no figures available), led to cancellation by a disgruntled
and impatient applicant.6
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II. 1950 - 1953
ESTABLISHMENT IN 1950 OF PERSONNEL OFFICE ALONG FUNCTIONAL LINES
In December 1950 the SSS and A&S Support units were discontinued
and their functions remerged with the staff offices under the recentral-
ized Deputy Director for Administration (DDA). The former Personnel
Staff plus the overt-covert divisions became the Office of Personnel
under the directorship of William J. Kelly. Then, as in other Support
areas, responsibility for clandestine personnel matters was redivided
between two divisions. This represented a reconciliation of the needs
for centralized administrative responsibility and the needs for opera-
tional autonomy and compartmentation.
Personnel Division Overt (PDO) provided assistance to DDI and DDA
components in such matters as recruitment, placement, promotion and
reassignments. Personnel Division Covert (PDC) provided services to
the DDP units. From their respective placement branches, PDO and PDC
assigned placement officers to each of the operating officers. In
addition, recruitment functions were given over to a separate Personnel
Procurement Division.
The period 1950 - 1953 was one of tremendous growth in terms of
recruitment, placement and personnel management. In the spring of 1952,
25X9
the Personnel Office was EODing =per month. On duty in 1950 were
25X9 25X9
0 employees; by December 1953 the total had risen too With
these great leaps in manpower strengths new recruitment and placement
procedures were necessary. A study of selection and placement functions
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in May 1951 led to refinements in the recruiting process and processing
of applicant files.
PLACEMENT - INTERNAL PERSONNEL MANAGEMENT
When General W. Bedell Smith took the Agency directorship in Septem-
ber 1950, almost immediately he began to emphasize his personal interest
in the Agency's internal personnel management practices. Considerable
effort resulted in improvement of initial selection and placement of
employees. In a memo of 13 December 1951 to PDO and PDC, the Acting
Personnel Director, Mr. George Meloon, emphasized the importance of a
placement program and listed what needed to be done:
"The effectiveness of our personnel program depends largely upon
the kind of placement work we are doing. Placement should be regarded
as an internal recruitment and selection process which, as part of the
general effort to secure the right man for the right place, operates
10
as one of the most important factors in reducing employee turnover."
The following steps were to be taken by PDO and PDC:
1. Review all recruitment requisitions for personnel in
Grades GS-06 and above to determine which employees already
in the Agency qualified for promotion to these vacant
positions. This would require:
a. Complete qualification coding of all employees.
b. Recruitment to obtain personnel to fill vacancies created
by promotions.
2. Initiate a regular program of placement follow-ups at 30 - 60 -
90 day intervals following entering on duty of new employees. As
as result:
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b. Train. Reassign, counsel or separate.
The Deputy Director for Administration, Walter Reid Wolf, backed
this up with a memorandum to all assistant Directors requesting their
12
cooperation with the follow-up program.
Concurrent with emphasis upon placement programs, the training of
placement officers began on a regular basis. By June 1952, the OP
historical statement stated. "The concept of the placement officer as
the liaison between the personnel office and the operating unit is
becoming a reality. The placement officers are required to be in close
and constant contact with operating officials and are encouraged to
use these contacts in every possible way to improve the overall per-
sonnel program in the Agency."13
Apparently, the renewed emphasis on in-service placement and mana-
gement paid off. Calendar Year 1952 saw extensive activity--follow-
ups, codification of qualifications. During Calendar Year 1952 a
monthly average of
follow-ups was conducted, whereas only
entered on duty per month.
25X9 applicant files and
employee questionnaires were coded and
14
placed in a qualifications register and used for in-service placement.
This activity continued throughout the next year with over"follow-
25X9 ups per month, involving
employees. The placement units began
in this period to review Performance Evaluation Reports (PER) in the
25X9 amount of
for FY 1953. This period also saw the first publica-
tion of a Placement Handbook containing informational, regulatory and
procedural material pertinent to placement activities. Placement
10
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25X9
25X9
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activity during 1953 was high with a tremendous work load. The PDC
1953 annual report stated that its nine placement officers handled
an average of F-I cases of all types per month or
day per man. 15
25X1
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III. 1953 - 1958
In September 1953 the Office of Personnel underwent another major
reorganization and realigned its functions even more on functional
lines. The change came at a time when Agency personnel requirements
were decreasing and when a ceiling considerably lower than the existing
TO's was imposed. Emphasis shifted even more to internal recruitment,
placement and rotation.
Personnel Division Covert (PDC) and Personnel Division Overt (PDO)
were abolished. Most of their functions and responsibilities were
transferred to the new Placement and Utilization Division (P&UD).
Under this system all placement officers were brought under a single
division chief. In the Placement Branch, a senior placement officer
was placed in charge of placement for each of the directorates. But
by late 195+ when Placement and Utilization Division (P&UD) was renamed
Personnel Utilization Division (PUD), a separate branch existed, the
Clandestine Services Branch (CSB). CSB had originated from within DDP.
When the Special Support Assistant Staff for Covert Affairs was established
in 1954, CSB moved to PUD. PUD was renamed Personnel Assignment
Division in 1955.16
During this period, operating officials continued to exercise
primary functions of assignment, rotation, evaluation, promotion and
termination, while the Office of Personnel was centrally responsible
for advice on these matters and the rotation of or reassignment of
personnel between Career Service Areas. Since the establishment of
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the Career Service Boards in June 1952, the head of each Career
Service assumed responsibility for these particular placement
17
functions. The Office of Personnel assigned placement officers to
the Board meetings on a permanent basis. The Progress Report of the
Placement Branch for 195+ discusses the situation:
"During this six-month period (January - June 195+) working rela-
tionships with Career Management Officers, Personnel Officers and Career
Service Boards have been improved. Within the Clandestine Services,
Placement Officers continue in their direct support of the Career
Service Boards, and attend all meetings. A Placement Officer has also
been assigned to the Career Service Board of the DD/A and attends all
Board meetings. The Deputy Chief, Placement and Utilization Division
now serves as Chairman of the Personnel Career Service Board's Rotation
Planning Committee. 18
The same report lists three major problems involved with the coordina-
tion of the efforts of the various officials listed above:
a. Unassigned personnel (Overseas returnees)
b. Reporting and filling vacancies
c. Reassignments to effect more suitable utilization.
19
At that time a new improvement in advance planning of assignments
of overseas returnees was sorely needed. Not only was the regular
burden difficult to manage, it was increased with the 195+ drastic
25X1 A reduction in the
causing a great number of unassigned
personnel in Headquarters a few months later. An emergency placement
program was begun in order to deal with the crisis. Reassignment
13
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rosters and machine runs of qualifications and vacancies helped to some
extent. And although the placement process broke down in some cases
(leaving unassigned personnel to hunt on their own) most of these
returnees were suitably placed by the end of 1954. 20 Following this
crisis the Directorates and Career Service units developed various
methods of assigning personnel, most of the methods using the low
ceiling authorization for a guide. The low ceiling continued until
1956 when the EOD level returned almost to the 1953 high.21
Although external recruitment and placement of professionals was
deferred in favor of internal reassignment, the Agency suffered a
severe shortage of clerical personnel in 1954; consequently external
recruitment and placement of clericals intensified. Since the major
requirements came from special projects within the DDP, the Clerical
Placement Branch (CPB) worked closely with the DDP Career Service
Board to fill vacancies.
"The Clerical Placement Branch has been so deeply enmeshed in
satisfying immediate needs that it has not been able to devote adequate
time to one of its major functions. That function provides for the
assignment or reassignment of clerical personnel to opportunity type
positions. Although it has participated to a great extent in reassign-
ments initiated at the request of individuals, the Branch has as yet
not been manned sufficiently well to permit the adoption of an aggressive
and positive program to embark upon the type of career program now
getting under way in other services. It may be palliative to note,
14
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however, that the clerical personnel assigned by the Clerical Place-
ment Branch, are given service designations of the components they
enter. This immediately removes them from the jurisdiction of the
Clerical Placement Branch."
In late 1956, in order to end the shortage of clerical personnel
several improvements in the processing of applicants were made. This
involved entering on duty more clerical applicants on provisional
clearance and streamlining headquarters processing requirements in
order to bring these people into their assignments immediately.
By mid-1958 on-duty strengths were approaching ceilings and exceeding
them in certain offices. "Surplus" personnel became a problem again.
Considerable internal and out-placement activity was necessary. Con-
centration was on placement of "hard-to-get" categories, and on better
screening procedures and higher standards. Percentage of total com-
pleted applications referred and then rejected rose from the FY 1957
figure of 27% to 47/ in FY 1958. 23 This general condition remained
until 1961.
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25X1A
Certain organizational changes took place again in 1958. Functions
of the Personnel Procurement Division were merged with the former
Personnel Assignment Division into the Personnel Operations Division
(POD). Recruitment was subdivided into Departmental Recruiting Branch
and Field Recruitment Branch. The intention was to coordinate the
activities of Recruitment with those of Placement which were now being
conducted by the Career Services Support Branch (CSSB).
Recruitment and Placement were closely combined operations in the
first years of the Agency. This move was, then, a rejoining of the
two, which had been separated for over a decade.
25X1A
who had headed Recruitment and Placement activities in the formative
period, became Chief, POD.
In another change, Clandestine Services Branch of the former PAD,
now was made a separate division - Clandestine Services Personnel
Division of the Office of Personnel. The new division was placed
25X1A
initially under Mr. and soon thereafter by John
For a period it seems that Placement became submerged within the
environment of the Career Services, as is reflected in the new name
of the branch - Career Services Support Branch. The annual report of
POD for FY 1959 reflects the new attitude.
"With the above mentioned reorganization, and the resultant closer
working relationship with procurement elements, direct support to the
16
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Career Service within the DDS and the DDI reduced the gray areas of
responsibility that formerly existed, particularly in the flow of
applicant files against recognized vacancies, the referral of reassign-
ment cases to appropriate Agency components, correspondence to applicants
and to individuals accepted for processing, and the development of
procedures designed to provide more immediate service to operating
units conducts positive recruitment programs."24
Although ceiling limitations in most areas had been reached, recruitment of
certain "hard-to-get" categories became the main activity for CSSB.
The new procedures for this activity involved:
"....institution of a program for the timely handling of pro-
fessional applications of economists, engineers, and physical scientists
thereby permitting the gaining component to make a more firm commitment
to applicants falling within these scarce categories; the initiation
of tests measuring professional experience in the physical sciences;"25
The activities of CSSB continued in this general vein until 1961.
During FY 1961, CSSB became extremely active in placement in two addi-
tional specialized areas: the Biographic register which had been recently
transferred to OCR from State Department along with responsibility for
the NIS; and the National Photographic Intelligence Center (NPIC) which
had been given a sizeable increase in T/0 strength.
25X1 A v. I IREPORT26
In 1961 Mr.
25X1A
currently Deputy Director of Per-
sonnel for Recruitment and Placement, examined the placement function,
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and in a report to the Deputy Director for Support in December of 1961
made several appraisals and recommendations. He first recommended
that the Career Service Support Branch be rebuilt and be given the
"more accurate" title of Placement Branch .... "This is the Branch
which should have the largest role in the selection process and should
be the essential link between the recruiter and the customer." 27 The
reputation of the Office of Personnel depends to a great extent upon
25X1A
the performance of that Branch, Mr. II stated. Noting that the
Branch was understaffed with only four placement officers, he recommended
an increase in manning and a reorganization on a team basis:
OFFICE OF THE CHIEF
Chief
Logging Clerk
Secretary
TEAM I
Placement Officer (DDS Components)
Placement Officer (DDS Components)
TEAM II
Placement Officer (DD/I Components)
Placement Officer (DD/I Components)
Clerk-Typist
TEAM III
Placement Officer (DD/I Components)
Placement Officer (Contract, Special Placement,
Rotational Placement)
Clerk-Typist
This would ".... lead to equalization of work load, more timely and
complete service to components, greater speed in the processing of
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25X1A
applicant cases, and would enable the Branch to handle applicant
correspondence,"28 which was done in Records and Services Division.
It would have eliminated time wasting movement of files and inadequate
"The problems which beset the selection and clearance process
center around the inter-related factors of time (excessive time required
for each stage of action); decision making (who makes the decision to
accept or reject an applicant?); priorities (every case is of top
priority to someone); and the absence of any central authority to
monitor and police the system."29 The report followed with a
communication between branches. The correspondence, Mr.
stated, must be made "more personalized and responsive."
detailed discussion of these points. Basically the recommendations
involved a considerable strengthening of the role of placement in
monitoring and controlling the flow of applicants to the operating
offices, more stringent time limits, and a more realistic face-to-face
relationship between the placement officers and the units they served.
vi. 1962 - 196+
Reorganization
report came at a time when external recruitments were
at a rapid upturn and immediately before a large increase in manpower
ceilings. It came at an opportune time, for increased activity would
25X1A require many of the improvements Mr.
recommended. By mid-1963
when annual reports appeared, considerable changes were evident, and
the level of activity indicated in FY 63 reports illustrated that the
changes were responsive and positive.
25X1A
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First, in a reorganization of Personnel, Recruitment Branch of POD
became a Division with considerable increase in staffing and a number
of innovations along the whole recruitment process.
Within POD, a number of changes in non-placement activities took
place and finally a major reorganization of the Placement Branch. The
team-concept and correspondence section recommended by the
0
report ere instituted and the staffing of the Placement Branch increased.
In the Annual Report for FY 63 the work force in Placement Branch was
listed functionally:
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FUNCTIONS
The FY 63 Annual Report also discusses all the functions performed
by the Placement Branch. Listing each briefly, they were:
1. Advise operating units on matters pertaining to applicant
selection.
2. Determine minimum qualifications of applicants.
3. Applicant correspondence.
4. Survey to ascertain personnel requirements for recruitment.
5. Approve all Personnel actions for DDI, DDS, DDR, (Except PRA's).
6. Approve new appointments for DDP.
7. Review all "weak" and "outstanding," fitness reports.
8. Interview job applicants, candidates for reassignment,
counseling of employees.
9. Testing (Scientific).
10. Determination of applicants to be coded.
11. Orientation of new employees.
12. EOD processing.
As this paper so far illustrates, these functions have all
remained within the placement area since the beginning of the Agency,
though at various times one or another received special emphasis. One
function remaining stable throughout has been the final approval of
personnel actions.
At this point, in mid-1963, the Placement Branch had finished a
year "marked by a tremendous amount of work in just sheer volume."31
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With large numbers of applicants in selection-processing, Placement
was confronted with severe problems in keeping up with applicant
correspondence and arranging invitee travel. Applicants often were
faced with long waiting periods (Security clearances) and confusing
correspondence. In FY 63 937 applicants cancelled out after receiving
full security clearance. Some of these were beyond Agency control
and not directly caused by long selection and processing periods. But
at least ten percent (92) were cancelled by the operating units who
were no longer interested in the candidates after an extended period.32
On 6 December 1963 the Executive Director-Comptroller issued
Action Memorandum No. A-320, freezing strength as of 30 November.
New lower ceilings were announced, followed by another reduction for
FY 1965. This followed a boom period for the Agency and increased
staffing for the Placement Branch.33 In August 1965 the economy
drive involved Placement in assisting in reducing the strength figures
for various components. Follow-up interviews were initiated again
and emphasis switched to internal management of personnel. Even with
these activities, the Placement Branch, too, was under the economy
drive and had to cut its staff by 18.5%. Other problems resurfaced,
such as delays in obtaining from operating units final decisions on
applicants and heavy applicant correspondence. As Placement took
over other duties, or increased other activities such as follow-up
interviews, the work load actually increased over previous years - along
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By the end of FY 66 drastic changes in Office of Personnel
organization had taken place.35 The Office of Personnel had reorganized
into the Deputy Director system. Recruitment and POD were joined
under the Deputy Director of Personnel for Recruitment and Placement,
25X1A Mr.
0
(DD/Pers/R&P). Placement Division was headed, as
25X1 A it is at this time, by Mr.
reorganized, and to reflect its primary mission, it was renamed the
Professional and Technical Placement Branch and was headed by Mr.
25X1A
who was also the Deputy Chief of Placement Division. However,
the changes in organization at the Placement level were minimal; the
team concept remained in practice. The real changes were two: a
complete turnover (except for one man) of placement officers in the
Branch; and a renewed emphasis upon initial placement work caused by
a higher ceiling -ith a tremendous volume of placement and processing
in contract cases.
"As a result of personnel turnover and increased input demands,
all placement officers became chained to their desks. Seldom did they
have time to visit Career Service Representatives or Operating Officials -
most contact was by telephone. Follow-up interviews with personnel
who had been on-board six to eight months were discontinued due to
lack of time.
"Also, placement officers became intimately involved in contacting
professional and technical applicants to arrange for their invitee
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travel. Inasmuch as
Staff type and type "A" contract
25X1
invitees visited headquarters, the technicians could not handle the
volume above. "36
The problems encountered by the Placement Branch in meeting all
of its responsibilities during periods of peak activity and continuous
inflow of new staff employees indicated that a redivision of labor
within the Branch was needed. Placement officers who were busy with
initial placement duties and making personnel management forecasts
obviously could not devote enough time to internal personnel placement
matters such as reassignment, follow-ups, PR's and Fitness Reports and
professional advice to operating officials.
Therefore, in late 1966 the Professional and Technical Placement
Branch was abolished, and its functions divided between two new branches -
the Applicant Selection Branch (ASB) and the Employee Assignment Branch
(FAB).37
ASB's function was to concentrate upon the initial placement of
new applicants against identified vacancies throughout the Agency.
The team arrangement was discontinued and three placement officers and
five processing assistants handled DDS, DDI, DDS&T and DDP components.
Relieved of internal management duties, ASB was now able to concentrate
upon selection in a manner whereby the placement officers worked more
closely and quickly with operating components. Communication was
increased, more knowledge of what was needed by whom was gained, and
consequently, better quality assistance and advice to the Chief,
Placement Division, and to Recruitment in determining trends and
24
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forecasts were achieved. To systematize the flow of applicant files
and to ensure that every applicant would receive adequate and timely
exposure to operating units, a Skills Bank was set up within ASB in
November 1966.38 This central bank for new general-professional and
scientific-technical applicant files ensured control with a definite
purpose. once a new applicant file was received by ASB, an open review
period of seven days was allowed immediately in the Bank. The
applicant's basic skills were placed on a daily listing of new file
acquisitions and were then sent to 4+7 offices. These offices could
then come to the Skills Bank and review files in which they were
interested. A time limit was placed on the file once it was removed
from the Bank by an operating official. The Bank was monitored by
the placement officers, who kept track of applicant files that received
no interest in the seven-day period. At this point, through liaison
with operating officials the placement officer continued to "sell" his
applicant if he determined that the applicant was deserving of further
consideration. Or, if more than one office was interested in an applicant,
the placement officer met with these offices and determined an equitable
flow of the file based upon: current ceiling, recruitment requisition,
recruiter recommendation, test results, and the applicant's choice.39
This system has resulted in "optimizing" both the applicant's opportuni-
ties and the Agency's placement success. The Skills Bank was extremely
successful in peak activity period. However, during lulls and low
ceiling authorization periods the Bank required considerable attention
to insure that it did not stop functioning because of lack of interest
by operating components.
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The overall selection process improved as a result of the re-
organization, the Skills Bank, and other new procedures. Correspondence
with applicants became more personal and timely. Scheduling of applicant
appointments in processing also became more systematized.
The Employee Assignment, Branch (EAB) was established to be
"Responsible for technical EOD processing and for all placement
activities concerned with the management of on-duty professional
41
and technical personnel." These activities included: appointing
and briefing all new professional and technical EODs; reviewing and
approving, on behalf of the Director of Personnel, all official
personnel actions concerned with Staff employees; reviewing all
Quality Step Increases; conducting follow-up and placement interviews
(reinstituted in January 1967), and providing daily professional advice
to operating components concerning personnel matters. 42
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1946
GENERAL CHRONOLOGY OF ORGANIZATION
Executive for Personnel and Administration (P&A)
Recruitment and Placement Combined
1947 (July) P & A renamed Executive for Administration and
Management (A & M)
1948 (June) Meanwhile OSO, OPC had own Administrative and
Support Staff (A & S) with Personnel Division
and Recruitment Combined.
1948 (September) Executive for Administration with five staffs,
each subdivided Overt and Covert. Each has
Recruitment and Placement sections.
1949 (October)
1950 (December)
1952
Major split: Administrative Support Staff (A&S)
and Cover Support Staff (CSS).
A&S and SSS combined under Deputy Director for
Support (DDS)
Formed Office of Personnel
Personnel Division Overt (PDO)
Personnel Division Covert (PDC)
1953 (September) Office of Personnel Reorganized
PDO and PDC abolished; Functions placed under
Placement and Utilization Division (P&UD)
Placement Branch (PB)
Clandestine Services Branch (CSB)
Clerical. Placement Branch (CPB)
1955 P&UD changed to Personnel Assignment Division (PAD).
PB and CSB remained.
1958
1961
PAD and Recruitment placed under Personnel
Operations Division (POD).
25X1A
Report
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1962 Reorganized Office of Personnel
Recruitment made a separate Division
Placement Branch (PB) replaced CSSB using team
organization
1966 (April) Office of Personnel reorganized into three Deputy
Directors -
Deputy Director of Personnel for Recruitment and
Placement -
Recruitment Division
Placement Division
Professional and Technical Placement
Branch (PTPB)
1966(August) Reorganization of functions among three Deputy
Directors
PTPB split into:
EAB, Employee Assignment Branch
ASB, Applicant Selection Branch
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FOOTNOTES TO PIACEMENT HISTORY
25X1
25X1A
25X1A 9.
1. The above discussion is taken from three main sources: Agency
tables of Organization 1946-1950, Records Center, or SRB, OP;
"CIA History" Part II, Chapter X, in Historical Staff Files;
interviews with individuals involved historically in placement
activities.
2. "Historical Statement for the Personnel Office," 24 June 1952,
Page 4, in Historical Staff files.
4. Interviews,
6. Interviews with
May 1951, Personnel.
25X1A
25X1A
25X1A
7. Interview wit "CIA History 1953-1956," 25X1 A
Page 63, ff. draft, in Historical to es.
25X1A
8. DDA-DDS History, OP. Cit., Page 33; interview
., Op. Cit.
10. Memorandum Mr. to C/PDO, PDC, dated 13 December 1951, in
Progress Report, 1951, 1952, and 1953 in Records Center.
12. Memorandum from DDS to all Assistant Directors, "Placement Follow-
up Program," no date, but included in Annual Report of Office of
Personnel, 1951; in Records Center.
13. 1951 Annual Report, Tab 6, in Records Center.
14. 1952 "Historical Statement," Op. Cit., Page 5.
15. Annual Reports, Office of Personnel, 1951-1953. In Records Center.
16. Changes of names in organization for this period are generally
correct, but dates are approximate and were established by the
writer through several interviews (listed as sources), TOs, Annual
25X1A Reports, and II Op. Cit. The official directives establishing
the changes were not consulted, or were unavailable, or non-
existent.
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25X1A
25X1A
contains a
good discussion of Career Service beginnings and early develop-
ments. The Career Services are subject of a specialized history
now being written, and will also contain discussions of placement
functions.
18. Progress Report, Placement Branch, in Office of Personnel Progress
Report 1954, in Records Center.
19. ibid.
20. Il Op. Cit., Page 64-70.
22. PUD Annual Report, FY 55, in Office of Personnel Annual Report,
FY 55, Tab D, in Records Center.
23. POD Annual Report 1958 in Office of Personnel Annual Report 1958,
in Records Center.
24. POD Annual Report, 1959.
25. ibid, and Report for 1960.
25X1A 26. Memorandum from to Deputy Director for Support,
24 December 1961: Recruitment and Selection of Staff Employees:
An appraisal, in Recruitment Division files.
27. ibid.
28. ibid.
29. ibid.
30. Annual Report of Office of Personnel FY 63, in Records Center.
31. POD Annual Report, FY 63, in Placement Division files. See also
for these years, "Placement Statistics, Forecasts, etc. 1954 and
Earlier." In Plans and Review files c/o miss
32. Annual Report Placement Branch, FY 63, in Placement Division files.
33. POD Annual Report FY 65, in Placement Division files.
34. FY 64, 65 Annual Reports, POD, PB, in Placement Division files.
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25X1A
25X1A
38. Rationale for the Bank is discussed at length in a Memo from
25X1A sponsor of this concept, to Recruiters, dated
25 April 1966; in Placement Division files.
36. FY 66 Annual Report, Professional and Technical Placement Branch
(PTPB) in Placement Division files.
39. See Procedures Handbook, ASB files.
25X1A
40. FY 68 Annual Report, Placement Division in Placement Division
files.
41.
42. Detailed nature of EAB activities are contained in two general
subject and procedures notebooks c/o Chief, EAB.
25X1A
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In order not to become bogged down in following the
countless activities connected with personnel placement,
certain KEY functions will be traced; they are: initial
selection and assignment of personnel; internal recruit-
ment, placement and reassignment; the review and appraisal
of official personnel actions; and the role of the pro-
fessional placement officer.
The methods of operation and the types of organization
employed by the Office of Personnel to accomplish the
placement function have undergone continuous change.
Regardless of personalities or organizational politics
that were involved in changes at one time or another, the
main concern seems to have been: How can we select,
place and manage our people better and who should do it?
This paper treats these two questions and their
various answers from 1946 to 1967. It is a history of
the Placemct function and, therefore, it is not a strict
?genealogy o= organization. However, a chronological
narrative is used; it is thin in parts due to changes of
emphasis in the placement functions and due to lack of
written source.
Several individuals who had been active in placement
matters during the Agency's life were interviewed to fill
in gaps; these persons were extremely cooperative. Also,
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placement functions were often shared, overlapped or
duplicated because of the overt-covert split and other
reasons. (Treatment of these hazy areas will also be
found in other specialized histories, such as Career
Services Concepts and Org nization and the Clandestine
-.
Services Personnel Staff.
) ~.~
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1. 1946 - 1950
ENVIRONMENTAL: SUPPORT ORGANIZATION
As of July 1946 in CIG, a centrally placed unit
performed personnel functions under the Executive Staff
for Personnel and Administration (P&A). The Personnel
Division was first headed by Mr. , and 25X1A
in September 1946 by Mr. Recruitment 25X1A
and placement were combined as a single unit. In July
1947 the Executive for P&A was renamed the Executive
for Administration and Management (A&M) with Personnel
established as a branch along with the other Support
branches.
Meanwhile, since 1946, OSO had been forming its
own administrative staff, which by mid-1948 was named
the Administrative and Support Staff (A&S). Under it
were the Personnel Division and recruitment and placement
in one section. At this time OSO and the Office of
Policy Coordination (which also had its own staff), pro-
posed a unification of OSO and OPC units. This proposal
was opposed; in September 1948 the disagreement led to
the formation of a single Executive for Administration.
Therefore, under the Executive, a single group of
five staffs, each subdivided on an overt-covert basis, was
formed. It represented a compromise between centraliza-
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tion and decentralization. And then, in October 1949
a fundamental reorganization established completely
separate staffs for supporting each side of the house:
the Administrative Support Staff (A&S) to service overt
activities; and the Covert Support Staff (CSS) to service
the covert components. A few months later CSS was
renamed the Special Support Staff (SSS). The former
Personnel Staff was split into two divisions, one in
each of the new Support Staffs. Each7ersonnel division
established recruitment and placement sections or branches.
Overall, an Executive Staff was established to provide
1
policy guidance to the Executive of Agency.
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PLACEMENT Beginning (The People)
In the original central personnel unit, the leader-
25X1A Mr.
ship of the procurement and placement function was
provided by Andrew E. Van Esso. Mr. Van Esso was
succeeded for a short time by Mr. George Meloon, who
eventually became Personnel Director, and is now Director
of the Office of Logistics. He was succeeded by
With establishment of separate personnel staffs
25X1A
for overt and covert operations, the overt placement
was placed initially under Mr.
25X1A
who is now Chief, 25X1A
Control Division, Deputy for Plans and Control, Office
of Personnel. The covert placement function was first
headed by Mr.
and then by Mr. Donald 25X1A
2
], who is now Chief, Logistics Services Division.
FUNCTIONS, PROBLEMS AND ACCOMPLISHMENTS
"The placement units, when operating as a combined
procurement and placement activity, were almost totally
concerned with obtaining and initially assigning personnel.
Even relieved of procurement activity, the initial place-
ment activity represented. so large a volume of work that
subsequent review to determine whether initial placements
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t. I
were satisfactory or not was impossible. It is probably
in this area that the Agency pays most heavily for
sacrificing a well-rounded program to the demands of
recruitment. Especially in the face of uncertainty as
to the types of people needed for various positions it
becomes important to evaluate the success of placements
to determine which kinds of qualifications have been
more successful. Also it is probabn-y that a high number
of potentially-qualified personnel were lost to the
Agency because of job dissatisfactions which might have
been discovered through placement follow-up. Losses in
terms of personnel assigned to positions which were
performed adequately but were not best suited to individual
capabilities are unmeasurable but again may be reasonably
estimated in substantial number."
This statement in an earlier historical paper
written by the Personnel Staff in mid-1952 cites most
of the basic problems the Personnel Office was to continue
to deal with concerning the placement function to this
date. Other overall problems were: defining the proper
role of placement officers in dealing with these problems;
the contraction and expansion of manpower ceilings; and
the overt-covert split in organization.
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RECRUITMENT AND PLACEMENT - COMBINED FUNCTION
In these years, recruitment and placement were very
closely related organizationally and in practice. Recruiters
served as placement officers and the reverse was also
true. The main task, according to Mr.
was to 25X1A
determine which operating units needed what qualifications
in their people and how many people. The next obvious task
was to find these people. After finding his candidate,
the recruiter was often his own placement officer. After
spending some time in the field gathering applicants' files
from interviews, he would return to Headquarters and begin
"selling" his applicants to the operating units. Place-
ment officers were overburdened with record keeping and
details, having, little time to make personal contact with
4
these offices the erviced .
Those who screened walk-ins and reviewed applicant
files were non-professional placement officers with
inadequate knowledge of the jobs they were filling. The
Applicant Files Branch was crowded and behind in coding
applicants by qualification.5
In this period the placement officers were given
authority to review and sign off PersonnelAC"tions on all
types of activities from promotions to reassignments.
Processing,-Personnel.Actions was not yet refined; this
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forced the placement officer to spend much time in clerical
tasks and record keeping. Fitness Reports were reviewed
by the placement officers, but little time for an adequate
review existed.
Also, in 1947 a placement follow-up interview program
had been established by Mr. Van Esso. The purpose was
to get to the new employee withthree to eight months.of
his initial employment to determine the propriety of the
initial placement. As the historical statement (quoted
above) of 1952 stated, these interviews could not be
performed regularly. The pressure for recruitment and
initial placement was too great and was exacerbated by
difficulties in communications with operating units and
lack of control over the flow of applicant files through
the selection process. Another frequent complaint was=a
backlog of correspondence with applicants in process which,
in many cases (no figures available), led to cancellation
by a disgruntled and impatient applicant.
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ESTABLISHMENT IN 1950 OF PERSONNEL OFFICE ALONG
FUNCTIONAL LIN
In December 1950 the SSS and A&S Support units were
discontinued and their functions remerged with the staff
offices under the recentralized Deputy Director for
Administration (DDA). The former Personnel Staff plus
the overt-covert divisions became the Office of Personnel
under the directorship of William J. Kelly. Then, as in
other Support areas, responsibility for clandestine
personnel matters was redivided between two divisions.
This represented a reconciliation of the needs for cen-
tralized administrative responsibility and the needs for
operational autonomy and compartmentation.
Personnel Division Overt (PDO) provided assistance
to DDI and DDA components in such matters as recruitment,
placement, promotion and reassignments. Personnel Division
Covert (PDC) provided services to the DDP units. From their
respective placement branches, PDO and PDC assigned place-
ment officers to each of the operating officers. In
addition, recruitment functions were given over to a
separate Personnel Procurement Division.
The period 1950 - 1953 was one of tremendous growth
in terms of recruitment, placement and personnel management.
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25X9
25X9
In the spring of 1952, they were EODirng " per month.
On, duty in 1950 were 0 employees; December 1953
II
With these great leaps in manpower
Ut5
strenghts1new recruitment and placement procedures
were necessary. A study of selection and placement
functions in May 1951 led to refinements in the recruiting
process and processing of applicant files.
PLACEMENT - INTERNAL PERSONNEL MANAGEMENT
When General W. Bedell Smith took the Agency director-
ship in September 1950, almost immediately he began to
emphasize.his personal interest in the Agency's internal
personnel management practices. Considerable effort
resulted in improvement of initial selection and place-
ment of employees. In a memo of 13 December 1951 to PDO
and PDC, the Acting Personnel Director, Mr. George Meloon,
emphasized the importance of a placement program and
listed what needed to be done:
"The effectiveness of our personnel program depends
largely upon the kind of placement work we are doing.
Placement should be regarded as an internal recruitment
and selection process which, as part of the general effort
to secure the right man for the right place, operates as
one of the most important factors in reducing employee
turnover."
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The following steps were to be taken by PDO and
1. Review all recruitment requisitions for
personnel in Grades GS-06 and above to determine
which employees already in the Agency qualified
for promotion to these vacant positions.
This would require:
a. Complete qualification coding of
all employees.
b. Recruitment to obtain personnel
to fill vacancies created by
promotions.
2. Initiate a regular program of placement follow-
ups at 30 - 60 - 90 day intervals following entering
on duty of new employees. As a result:
a. Retain.
b. Train, reassign, counsel or separate.].].
The Deputy Director for Administration, Walter Reid
Wolf, backed this up with a memorandum to all assistant
Directors requesting their cooperation with the follow-up
program.12
Concurrent with emphasis upon placement programs, the
training of placement officers began on a regular basis.
By June 1952, the OP historical statement stated: "The
concept of the placement officer as the liaison between
the personnel office and the operatin 1 ecoming a
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25X1
25X1
25X1
25X9
reality. The,.placement ,lficers are required to be
in close and constant contact with operating officials
and are encouraged to use these contacts in every
possible way to improve the overall personnel program
in the Agency."
Apparently, the renewed emphasis on in-service
placement and management paid off. Calendar Year 1952
saw extensive activity--follow-ups, codification of
qualifications. During Calendar year 1952 a monthly
average of
25X9 applicant files and
0
,,,k~ttL, coded and placed in a qualificati ns. register and used
for in-service placement. This-start ontinued throughout
the next year with over
25X9
follow-ups;wereconducted, whereas only
entered on duty per month.
employee questionnaires
follow-ups per month, involving
employees. The placement units began in this period
to review Performance Evaluation Reports (PER) in the
25X9 amount of
for FY1953. This period also saw the
first publication of a Placement Handbook containing
informational, regulatory and procedural material
pertinent to placement activities. Placement activity
-- r-CY 1953 was high )Vi a tremendous work load. The
PDC1annual report -c-lair`" that its nine placement officers
c
handled an average of
cases of all types per month
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In September 1953 the Office of Personnel underwent
another major reorganization and rea igned its functions
7 e .,.U ?t
even more on functional lines. Tli.s--came;'at a time when
he Agency personnel requirements were decreasing and
when a ceiling-'was impose considerably lower than the
existing TO's Emphasis shifted even more to internal
recruitment, placement and rotation.
Personnel Division Covert (PDC) and Personnel
Division Overt (PDO) were abolished. Most of their
functions and responsibilities were transferred to the
new Placement and Utilization Division (P&UD). Under
this system all placement officers were brought under
a single division chief. In the Placement Branch, a
senior placement officer was placed in charge of place-
ment for each of the Mirectorates. But by late 1954
when Placement & Utilization Division (P&UD) was renamed
Personnel Utilization Division (PUD), a separate asranch
existed, the Clandestine Services Branch (CSB). CSB had
originated from within DDP. When the Special Support
Assistant Staff for Covert Affairs was established in
1954, CSB moved to PUD. PUD was renamed Personnel Assign-
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During this period, operating officials continued
to exercise primary functions of assignment, rotation,
evaluation, promotion and termination, while the Office
of Personnel was centrally responsible for advice on
these matters and the rotation of or reassignment of
personnel between Career Service Areas. Since the
establishment of the Career Service Boards in June
1952, the head of each Career Service assumed respon-
17
sibility for these particular placement functions.
The Office of Personnel assigned placement officers to
the Board meetings on a permanent basis. The Progress
Report of the Placement Branch for 1954 discusses the
situation:
"During this six month period (January - June 1954)
working relationships with Career Management Officers,
Personnel Officers and Career Service Boards have been
improved. Within the Clandestine Services, Placement
Officers continue in their direct support of the Career
Service Boards, and attend all meetings. A Placement
Officer has also been assigned to the Career Service
Board of the DD/A and attends all Board meetings. The
Deputy Chief, Placement and Utilization Division now
ti
serves as Chairman of the Personnel Career Service Boards
Rotation Planning Committee."
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The same report lists three major problems involved
with the coordination of the efforts of the various officials
listed above:
a. Unassigned personnel (Overseas returnees)
b. Reporting and filling vacancies
c. Reassignments to effect more suitable
utilization.19
25X1A
At that time a new improvement in advance planning
of assignments of overseas returnees was sorely needed.
Not only was the regular burden difficult to manage, it
was increased with the 1954 drastic reduction in the
causing a great number of unassigned
personnel in Headquarters a few months later. An emergency
placement program was begun in order to deal with the
crisis. Reassignment-Rosters and machine runs of qualifica-
tions and vacancies helped to some extent. And although
the placement process broke down in some cases (leaving
unassigned personnel to hunt on their own) most of these
returnees were suitably placed by the end of 1954.20
Following this crisis the Directorates and Career Service
units developed various methods of assigning personnel,
most of the methods using the low ceiling authorization
for a guide. The low ceiling continued until 1956 when
the EOD level returned almost to the 1953 high.21
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SECRET
Although external recruitment and placement of
professionals was deferred in favor of internal reassign-
ment, the Agency suffered severeIshortage of clerical
personnel in 1954; consequently external recruitment
and placement of clericals intensified. Since the
major requirements came from special projects within the
DDP, the Clerical Placement Branch (CPB) worked closely
with the DDP Career Service Board to fill vacancies.
"The Clerical Placement Branch has been so deeply
enmeshed in satisfying immediate needs that it has not
been able to devote adequate time to one of its major
functions. That function provides for the assignment
or reassignment of clerical personnel to opportunity
type positions. Although it has participated to a great
extent in reassignments initiated at the request of
individuals, the Branch has as yet not been manned
sufficiently well to permit the adoption of an aggressive
and positive program to embark upon the type of career
program now getting under way in other services. It
may be palliative to note, however, that clerical personnel
assigned by the Clerical :Placement Branch, are given
service designations of the components they enter. This
immediately removes them from the jurisdiction of the
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In late 1956, in order to end the shortage of clerical
personnel several improvements in the processing of
applicants were made. This involved entering on duty
more clerical applicants on provisional clearance and
streamlining headquarters processing requirements in order
to bring these people into their assignments immediately.
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By mid 1958 on-duty strengths were approaching
ceilings and exceeding them in certain offices.
"Surplus" personnel became a problem again. Considerable
internal and out-placement activity was necessary.
Concentration was on placement of "hard-to-get" categories,
and on better screening procedures and higher standards.
Percentage of total completed applications referred and
then rejected rose from the FY 1957 figure of 27% to
47% in FY 1958.23 This general condition remained until
Certain 0rganizational changes took place again in
1958. Functions of the Personnel Procurement Division
were merged with the former Personnel Assignment Division
into the Personnel Operations Division (POD). Recruitment
was subdivided into Departmental Recruiting Branch and
Field Recruitment Branch. The intention was to coordinate
the activities of Recruitment with those of Placement
which were now being conducted by the Career Services
Support Branch (CSSB).
Recruitment and Placement were closely combined
operations in the first years of the Agency. This move
was, then, a rejoining of the rtwo. which had been separated
who had headed 25X1A
GR~;;r 1
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25X1A
recruitment and placement activities in the formative
period, became Chief, POD.
In another change, Clandestine Services Branch
of the former PAD, now was made a separate division -
Clandestine Services Personnel Division of the Office
of Personnel. The new division was placed initially
and soon thereafter by
25X1A
For a period it seems that Placement became
submerged within the environment of the Career Services,
as is reflected in the new name of the branch - Career
Services Support Branch. The annual report of POD
for FY 1959 reflects the new attitude.
"With the above mentioned reorganization, and
the resultant closer working relationship with procure-
ment elements, direct support to the Career Service
within the DDS and the DD:[ reduced the gray areas of
responsibility that formerly existed, particularly in
the flow of applicant files against recognized vacancies,
the referral of reassignment cases to appropriate Agency
components, correspondence to applicants and to individuals
accepted for processing, and the development of procedures
designed to provide more immediate service to operating
units conducts positive recruitment programs." 24
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Although ceiling limitations in most areas had
been reached, certain "hard-to-get" categories became
the main activity for CSSB. The new procedures for
this activity involved:
"....institution of a program for the timely
handling of professional applications of economists,
engineers, and physical scientists thereby permitting
the gaining component to make a more firm commitment to
applicants falling within these scarce categories; the
initiation of tests measuring professional experience
in the physical sciences;"
The activities of CSSB continued in this general
vein until 1961. During FY 1961, CSSB became extremely
active in placement in two additional specialized areas:
the Biographic register which had been recently transferred
to OCR from State Department along with responsibility for
the NIS; and the National Photographic Intelligence Center
(NPIC) which had been given a sizeable increase in T/O
strength.
25X1A V. F ------ ]REPORT 16
25X1A In 1961 Mr. currently Deputy Director
of Personnel for Recruitment and Placement, examined the
placement function, and in a report to the Deputy Director
0
for Support in December of 19.51 made several appraisals and
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recommendations. He first recommended that the Career
Service Support Branch be rebuilt and be given the "more
accurate" title of Placement Branch .... This is the
Branch which should have the largest role in the selection
process and should be the essential link between the
recruiter and the customer." 27 The reputation of the
Office of Personnel depends to a great extent upon the
performance of that Branch, Mr.
0
stated. Noting
that the Branch was understaffed with only four placement
officers, he recommended an increase in manning and a
reorganization on a team basis:
OFFICE OF THE CHIEF
Chief
Logging Clerk
Secretary
Placement Officer (DD/S Components)
Placement Officer (DD/S Components)
Placement Officer (DD/I Components)
Placement Officer (DD/I Components)
Clerk-Typist
Placement Officer (DD/I Components)
Placement Officer (Contract, Special
Placement, Rotational
Placement)
Clerk-Typist
r~udad t vat mU q
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This would ".... lead to equalization of work load, more
timely and complete service to components, greater speed
in the processing of applicant cases, and would enable
the Branch to handle applicant correspondence," 28 which
was done in Records and Services Division. It would have
eliminated time wasting movement of files and inadequate
communication between branches. The correspondence,
stated, must be made "more personalized and
responsive."
"The problems which beset the selection and clearance
process center around the inter-related factors of time
(excessive time required for each stage of action);
decision making (who makes the decision to accept or
reject an applicant?); priorities (every case is of top
priority to someone); and the absence of any central
authority to monitor and police the system."29 The report
followed with a detailed discussion of these points.
Basically the recommendations involved a considerable
strengthening of the role of placement in monitoring and
controlling the Row of applicants to the operating offices,
more stringent time limits, and a more realistic face-to-
face relationship between theacement officers and the
units they served.
r~ ' seuuG71 ifQll{ 8L't~:llfifl.
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VI. 1962 - 1964
Reorganization
25X1A
report came at a time when external
recruitments were at a rapid upturn and immediately
before a large increase in manpower ceilings. It came
at an opportune time, for increased activity would
25X1A
require many of the improvements Mr. 0 recommended.
By mid-1963 when annual reports appeared, considerable
changes were evident, and the level of activity indicated
in FY 63 reports illustrated that the changes were
responsive and positive.
First, in a reorganization of Personnel, Recruitment
Branch of POD became a Division with considerable increase
in staffing and a number of innovations along the whole
recruitment process.
Within POD, a number of changes in non-placement
activities took place and finally a major reorganization
of the Placement Branch. The team-concept and correspondence
?c. (1(1
section recommended section recommendedby the
report was instituted and the staffing of the Placement
Branch increased. In the Annual Report for FY 63 the
work force in Placement Branch was listed functionally:
P eluded from astcmatic
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*All positions filled.
FUNCTIONS
The FY 63 Annual Report also discusses all the
functions performed by the Placement Branch. Listing
each briefly, they were:
1. Advise operating units on matters pertaining
to applicant selection.
cap;? E
Excluded tram aat:nati;.
downgrading and
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2. Determine minimum qualifications of applicants.
3. Applicant correspondence.
4. Survey to ascertain personnel requirements
for recruitment.
5. Approve all Personnel actions for DDI, DDS,
DDR, (Except PRAs).
6. Approve new appointments for DDP.
7. Review all "weak" and "outstanding", fitness
reports.
8. Interview job applicants, candidates for
reassignment, counseling of employees.
9. Testing (Scientific)
10. Determination of applicants to be coded.
11. Orientation of new employees.
12. EOD processing.
as this paper so far illustrates, these functions have all
remained within the placement area since the beginning of
the Agency, though at various times one or another received
special emphasis. One function remaining stable throughout
has been the final approval of personnel actions.
At this point, in mid-1963, the Placement Branch had
finished a year "marked by a tremendous amount of work in
just sheer volume." 31 With large numbers of applicants in
selection-processing, Placement was confronted with severe
problems in keeping up with applicant correspondence and,,-
eAf-
arranging invitee travel. Applicants often were rced with
cBa'yP 1
Excluded tram automati'
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long waiting periods (Security clearances) and confusing
correspondence. In FY 63
after receiving full security
applicants cancelled out
were beyond Agency control and not directly caused by
long selection and processing periods. But at least
ten percent
who were
extended
continue
will not
foregoing
following
were cancelled by the operating units
longer interested in the candidates after
ry
period. These problems have been and will
be subjects of specialized histories and
discussion, and whenever pertinent to the
discussions. 't
On 6 December 1963 the Executive Director-Comptroller
issued Action Memorandum No. A-320, freezing strength
as of 30 November. New lower ceilings were announced,
followed by another reduction for FY 1965. This followed
a boom period for the Agency and increased staffing for
the Placement Branch. 33 In August 1965 the economy drive
involved Placement in assisting in reducing the strength
figures for various components. Follow-up interviews were
initiated again and emphasis switched to internal manage-
ment of personnel. Even with these activities, the Placement
Branch, too, was under the economy drive and had to cut
its staff by 18.5%. Other problems resurfaced, such as
delays in obtaining from operating units,.'final decisions
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on applicants and heavy applicant correspondence. As
Placement took over other duties, or increased other
activities such as follow-up interviews, the work load
actually increased over previous years - with a decrease
in staff. 34
By the end of FY 66 drastic changes in Office of
Personnel organization had taken place.35 The Office
of Personnel had reorganized into the Deputy Director
system. Recruitment and POD were joined under the
Deputy Director of Personnel for Recruitment and Placement,
25X1A Mr.
(DD/Pers/R&P). Placement Division was
headed, as it is at this timelby Mr.
Placement"ranch was reorganized, and to reflect its
primary mission, it was renamed the Professional and
Technical Placement Branch and was headed by Mr.
who was also thetuty Chief of Placement Division.
However, the changes in organization at the Placement
level were minimal; the team concept remained in practice.
The real changes were two: a complete turnover (except
for one man) of placement officers in the Branch; and a
renewed emphasis upon initial placement work caused by a
higher ceiling and a tremendous volume of placement and
processing in contract cases.
Excluded from autamatic
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"As a result of personnel turnover and increased
input demands, all Placement Officers became chained
to their desks. Seldom did they have time to visit
Career Service Representatives or Operating officials -
most contact was by telephone. Follow-up interviews
with personnel who had been on-board six to eight months
were discontinued due to lack of time.
"Also, Placement officers became intimately involved
in contacting professional and technical applicants to
arrange for their invitee travel. Inasmuch as
Staff type and
0
type "A" Contract invitees visited
headquarters, the technicians could not handle the
36
volume above."
The problems encountered by the Placement Branch
in meeting all of its responsibilities during periods
of peak activity and continuous inflow of new Staff
employees, indicated that a redivision of labor within
the Branch was needed. :Placement officers who were busy
with initial placement duties and making personnel manage-
ment forecasts obviously could not devote enough time to
internal personnel placement matters such as reassignment,
follow-ups, PAs and Fitness Reports and professional advice
erating officials.
Therefore1in late 1966 the Professional and Technical
Placement Branch was abolished, and its functions divided
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i-eftr
between two new branches - the Applicant Selection Branch
(ASB) and the Employee Assignment Branch (EAB).37
ASB's function was to concentrate upon the initial
placement of new applicants against identified vacancies
throughout the Agency. The team arrangement was discontinued
and three placement f;icers and five processing assistants
handled DDS, DDI, DDS&T,-tcomponents. Relieved of internal
management duties )ASB was now able to concentrate upon
selection in a manner whereby the placement officers
worked more closely and quickly with operating components.
Communication was increased, more knowledge of what was
needed by whom was gained, and consequently, better
quality assistance and advice toiChief, Placement Division,
and to Recruitment in determining trends and forecasts was'
achieved. To systematize the flow of applicant files and
to ensure that every applicant would receive adequate and
timely exposure to operating units, a Skills Bank was set
up within ASB in November 1966.38 This central bank for
new general rofessional and ,S`cientific-Technical applicants:
ensured control with a definite purpose. Once a new
applicant file.-is received by ASB, an open review period
tea rf.r~
of seven days:: is 'allowed immediately in the Bank. The
applicant's basic skills_`ar~ placed on a daily listing of
LLrrt
offices. These 25X1
new file acquisitions and`s'then sent to
F
64
officesmay=then come to the Skills Bank and review files
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in which they `are; interested. A time limit i? placed on
the file once it isFremoved from the Bank by an operating
official. The Bank;-''isimonitored by the ,placement officers,
who watch for applicant files that receivdno interest in
the seven-day period. At this point, through liaison with
operating officials the-P acement officer continues to
"sell" his applicant if he determines,that that applicant
4, 6( I
fis)deserving of further consideration. Or,,if more than
(t/f
one office is'.interested in an applicant, the Placement
officer meesth these offices and determine an equitable
flow of the file based upon: current ceiling, recruitment
requisition, recruiter recommendation, test results, and
9
the applicant's choice.3
If
This system has resulted in(anj
optimizing both(ofthe applicant's opportunities and(
the Agency's placement success. The Skills Bank is/as
extremely successful in peak activity period. However,
during lulls and low ceiling authorization periods the
Bank required considerable watching because of lack of
interest by operating components.
The overall selection process improved as a result
of the reorganization, the Skills Bank, and other new
procedures. Correspondence with applicants became more
personal and timely. Scheduling of applicant appointments
in processing.becamelalsoimore systematized.
id irwm 3s1~rnatic
bwxgrading and
daslassi?ir:alias
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The Employee Assignment Branch (EAB) was established
to be "Responsible for technical EOD processing and for
all placement activities concerned with the management
of on-duty professional and technical personnel."41 These
activities included: appointing and briefing all new
professional and technical EODs; reviewing and approving,
on behalf of the Director of Personnel, all official
personnel actions concerned with Staff employees; reviewing
all Quality Step Ipcreases; conducting follow-up( interviews
and placement,/"(reinstituted in January 1967))and providing
daily professional advice to operating components concerning
personnel matters. 42
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Executive for Personnel and Administration
(P & A)
Recruitment and Placement Combined
1947 (July) P & A renamed Executive for Administration
and Management (A & M)
1948 (June)
1948 (September)
1949 (October)
1950 (December)
Meanwhile OSO, OPC had own Administrative
and Support Staff (A & S) with Personnel
Division and Recruitment Combined.
Executive for Administration with five
staffs, each subdivided Overt and Covert.
Each has Recruitment and Placement sections.
Major split: Administrative Support Staff
(A & S) and Cover Support Staff (CSS).
A & S and SSS combined under Deputy
Director for Support (DDS)
Formed Office of Personnel
Personnel Division Overt (PDO)
Personnel Division Covert (PDC)
1953 (September) Office of Personnel Reorganized
PDO and PDC abolished; Functions placed
under Placement and Utilization Division
(P & UD)
Placement Branch (PB)
Clandestine Services Branch (CSB)
Clerical Placement Branch (CPB)
1955 P & UD changed to Personnel Assignment
Division (PAD). PB and CSB remained.
1958 PAD and Recruitment placed under Personnel
Operations Division (POD)
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Report
1962 Reorganized Office of Personnel
Recruitment made a separate Division
Placement Branch (PB) replaced CSSB
using team organization
1966 (April) Office of Personnel reorganized into
three Deputy Directors -
Deputy Director of Personnel for
Recruitment and Placement -
Recruitment Division
Placement Division
Professional and Technical
Placement Branch (PTPB)
1966 (August) Reorganization of Functions among three
Deputy Directors
PTPB split into:
EAB, Employee Assignment Branch
ASB, Applicant Selection Branch
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da~rngrading ao
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1. The above discussion is taken from three main sources:
Agency tables of Organization 1946-1950, Records Center,
or SRB, OP; "CIA History" Part II, Chapter X, in
Historical Staff Files; interviews with individuals
involved historically in placement activities.
2. "Historical Statement for the Personnel Office",
24 June 1952, Page 4, in Historical Staff files.
25X1A 4. Interviews,
25X1A 5. The
May 1951, Personnel.
25X1A 6. Interviews with I
.
25X1A 7. Interview withi "CIA
History 1953-1956", Page 63, ff. draft, in Historical
Staff files.
25X1A
8. DDA-DDS History, Op. Cit., Page 33; interview Mr. Meloon,
25X1A 9.
, Op. Cit.
10. Memorandum Mr. Meloon to C/PDO, PDC, dated 13 December
1951, in Progress Report, 1951, 1952, and 1953 in
Records Center.
12. Memorandum from DDA to all Assistant Directors, "Placement
Follow-up Program", no date, but included in Annual
Report of Office of Personnel, 1951; in Records Center.
13. 1951 Annual Report, Tab 6, in Records Center.
14. 1952 "Historical Statement", Op. Cit., Page 5.
15. Annual Reports, Office of Personnel, 1951-1953. In
Records Center.
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downgrading and
deylassWcatlon
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16. Changes of names in organization for this period are
generally correct, but dates are approximate and
were established by the writer through several
25X1A :interviews (listed in sources), TOs, Annual Reports,
ff' ' 1 di ectives
r
h
25X1A 17.
25X1A
25X1A
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y~ ' "" '"'dd9 s 4m aut.matte
e o icia
and Q Op. Cit. T
establishing the changes were not consulted, or
were unavailable, or non-existent.
~Op. Cit., Page. 63. This draft by
contains a good discussion of Career Service beginnings
and early developments. The Career Services are
subject of a specialized history now being written,
and will also contain discussions of placement
functions.
18. Progress Report, Placement Branch, in Office of
Personnel Progress Report 1954, in Records Center.
19. ibid
20. Op. Cit., Page 64-70.
21. ibid
22. PUD Annual Report, FY 55, in Office of Personnel
Annual Report, FY 55, tab D, in Records Center.
23. POD Annual Report 1958 in Office of Personnel Annual
Report1958, in Records Center.
24. POD Annual Report, 1959.
25. ibid, and Report for 1960.
for Support, 24 December 1961:
Selection of Staff Employees:
Recruitment Division files.
26. Memorandum from
to Deputy Director
Recruitment and
An appraisal, in
27. ibid
28. ibid
29. ibid
30. Annual Report of Office of Personnel fy 63, in Records
Center.
25X1A
uoel~s;7ffs~1tof1
 Approved For Release 200 C fl-RDP81-00314F 0600150001-4
31. POD Annual Report, FY 63, in Placement Division files.
See also for these years, "Placement Statistics, Forecasts,
etc 1964 and Earlier". In Plans and Review files
25X1A
32. Annual Report Placement Branch, FY 63, in Placement
Division files.
33. POD Annual Report FY 65, in Placement Division files.
34. FY 64, 65 Annual Reports, POD, PB, in Placement Division
files.
25X1A 35.
25X1A
25X1A
25X1
36. FY 66 Annual Report, Professional and Technical
Placement Branch (PTPB) in Placement Division files.
to Recruiters, dated 25 April 1966; in Placement
Division files.
a Memo from sponsor of this concept,
38. Rationale for the Bank is discussed at length in
39. See Procedures Handbook, ASB files.
40. FY 68 Annual Report, Placement Division in Placement
Division files.
42. Detailed nature of EAB activities are contained in
two general subject and procedures notebooks c/o
Chief, EAB.
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 5X1A
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'... S
%A=IE OF Ct9r .
- FOSS HmPMI # IN CIA.
cHAPR II
CHAPTBR III
CROM TV
CHAPTER V
CHAPTER VI
CHAPTER VII
CRAPM VIII
SOURCE '' R IALS
ADDER
qumItx OF EXCEPTION -
FTTSMS IUWQFSM
TFIN RAW DOS (1947-52)
IAL MEA - 1952-55
PMM TO A MM E MC N P - Jan 1956 ..
Dec 1957
m momm r m - Jenunx7 1958 - 1961
Jan 2,961 - Dec 1968 Ct RREN FM
F1 SS FWw CUITROL
A LOOK TO '' FUTUIM
15
23
26
27
1-14
15
16
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 5X1A
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 Approved For Release IVETIA-RDP81-00314ROO0600150001-4
25X1A
ion Report
Individual a his su r'viewr'. this evaluation
nimt]y by
veloping a satisfactory working relati
requirements of the Individual "a current position
long service with the .icy. It was not a performance nor an efficiency
rating in the some that the individual was
real fcwm. It an unca liccated
to fir.
It was deliberately a norste-tiati
The P.Q.R. was introduces in
but was not approved by the Chief,
Directorate for MOMS,
Yom 51-53 =,1
of 1954.
On 13 Y1W 1954
'+,
in Weser of 1952
in the Deputy
11 the sur of 1954j, with
r Selection Report.," was thus born..10 It was
uct
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25X1A
25X1A
tnese reporting by
Ls and Evaluation ( )
:acted at the direction of the Career Council from August
of 1954 to September of 1955. Ofte neirly-eetabliehed co=il would now
c tin the monitoring process on fitness
a ved1th of knov,
experience gained frcmt s#xeilar work with the
Departwnt of the Army.
Several forerunners to his final form drew somevbat upon Fit 3T-29
January 1955 Dr. had acne up with a fors that he considered
xial balloon" status. Again In ways it represented a
25X1
Modification of 37-189 of T 1954.
questionnaire . Approxinately 1500 of thew q
completed.
a fitness report
er Council on 2I Febraary 1955, at
vas going to appear, only 173
25X1A
d to as a "dor y
by r. Irman Kirkpatrick who theft that one would hare hest to
til the studies were completed no c +e in the
25X1A
5X1A
or of s3mi3.es m tal capacity at the least to decipher the
meet
3 * 1955, the
a Task Force consisting of Messrs.
ouncil appointed
8
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 Approved For Release 2003/ 'A-RDP81-003148000600150001-4
TO A 19
on 17
eatablisbment, of a "w,t,ch list" bwwd an Fitness
twnty-sixth Career Caai1
pvftmd affect On the
that zamewb e
of rsomel
a an isa Vii'
eek out
and
;ty*"
ba 1I vi
bat
be didd not Vossess
ts8e a rutiouale, this bmY aml
ferry ume Fitnerss P 8 to date2mdw t
to sNWO
by
15
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SECRET
1961
25X1A
1962 Reorganized Office of Personnel
Recruitment made a separate Division
Placement Branch (PB) replaced CSSB
using team organization
1966 (April) Office of Personnel reorganized into
three Deputy Directors -
Deputy Director of Personnel for
Recruitment and Placement -
Recruitment Division
Placement Division
Professional and Technical
Placement Branch (PTPB)
1966 (August) Reorganization of Functions among three
Deputy Directors
PTPB split into:
EAB, Employee Assignment Branch
ASB, Applicant Selection Branch
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FOOTNOTES TO PLACEMENT HISTORY
25X1A
1. The above discussion is taken from three main sources:
Agency tables of Organization 1946-1950, Records Center,
or SRB, OP; "CIA History" Part II, Chapter X, in
Historical Staff Files; interviews with individuals
involved historically in placement activities.
2. "Historical Statement for the Personnel Office",
24 June 1952, Page 4, in Historical Staff files.
5~
3. ibid
4. Interviews, Mr.
10. Memorandum Mr. Meloon to C/PDO, PDC, dated 13 December
1951, in Progress Report, 1951, 1952, and 1953 in
Records Center.
11. ibid.
12. Memorandum from DDA to all Assistant Directors, "Placement
Follow-up Program", no date, but included in Annual
Report of Office of Personnel, 1951; in Records Center.
13. 1951 Annual Report, Tab 6, in Records Center.
14. 1952 "Historical Statement", Op. Cit., Page 5.
15. Annual Reports, Office of Personnel, 1951-1953. In
Records Center.
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16. Changes of names in organization for this period are
generally correct, but dates are approximate and
were established by the writer through several
interviews (listed in sources), TOs, Annual Reports,
and Gosnell, Op. Cit. The official directives
establishing the changes were not consulted, or
were unavailable, or non-existent.
25X1A 17.
contains a good discussion o career service e s
and early developments. The Career Services are
subject of a specialized history now being written,
and will also contain discussions of placement
functions.
18. Progress Report, Placement Branch, in Office of
Personnel Progress Report 1954, in Records Center.
?5X1 A 20.
25X1A
Op. Cit., Page 64-70.
22.. PUD Annual Report, FY 55, in Office of Personnel
Annual Report, FY 55, tab D, in Records Center.
23,. POD Annual Report 1958 in Office of Personnel Annual
Reportl958, in Records Center.
24. POD Annual Report, 1959.
25. ibid, and Report for 1960.
26. Memorandum fromi to Deputy Director
for Support, 24 December 1961: Recruitment and
Selection of Staff Employees: An appraisal, in
Recruitment Division files.
27. ibid
28. ibid
29. ibid
30. Annual Report of Office of Personnel fy 63, in Records
Center.
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31. POD Annual Report, FY 63, in Placement Division files.
See also for these years, "Placement Statistics, Forecasts,
etc. 1964 and Earlier". In Plans and Review files
c/o
32. Annual Report Placement Branch, FY 63, in Placement
Division files.
33. POD Annual Report FY 65, in Placement Division files.
34. FY 64, 65 Annual Reports, POD, PB, in Placement Division
files.
~5X1A 35.
36. FY 66 Annual Report, Professional and Technical
Placement Branch (PTPB) in Placement Division files.
25X1 A 37.
to Recruiters, dated 25 April 1966; in Placement
Division files.
a Memo from sponsor of this concept,
38.: Rationale for the Bank is discussed at length in
39. See Procedures Handbook, ASB files.
40. FY 68 Annual Report, Placement Division in Placement
Division files.
25X1A 41.
25X1
42. Detailed nature of EAB activities are contained in
two general subject and procedures notebooks c/o
Chief, EAB.
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