SCOPE AND METHODOLOGY
Document Type:
Collection:
Document Number (FOIA) /ESDN (CREST):
CIA-RDP90-00530R000200200004-9
Release Decision:
RIFPUB
Original Classification:
K
Document Page Count:
11
Document Creation Date:
December 27, 2016
Document Release Date:
March 20, 2013
Sequence Number:
4
Case Number:
Publication Date:
December 6, 1988
Content Type:
REPORT
File:
Attachment | Size |
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Body:
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In the fiscal year 1988 Intelligence Authorization Act (Title
VII, Section 701), the Congress directed that the National Academy
of Public Administration (NAPA) perform a comprehensive review and
comparative analysis of the civilian personnel management and
compensation systems of the Intelligence Community (IC). The study,
to be completed by January 20, 1989, was to include two interim
re,ox-t-s,~May 1 and August 1, 1988. To meet this mandate, the
IL 7 Staff contracted with NAPA
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The Congress directed the Academy panel to recommend changes,
if warranted, in legislative, regulatory, or other areas in the
personnel and/or compensation programs to improve the effectiveness
of the personnel systems of the IC agencies and to ensure they are
able to accomplish their missions in the years ahead.
To undertake this work, NAPA created a panel of experienced
executives, drawing them from among its membership and the broader
community of current and retired public and private sector
individuals. Panel members, whose brief bio statements appear at
the end of Volume I of this report, are:
Philip A. Odeen, Chair
Regional Managing Partner
Coopers and Lybrand
Hon. Julius W. Becton
Director
Federal Emergency Management Agency
Dr. James Colvard
Assistant Director for Tactical Systems
Applied Physics Lab, Johns Hopkins University
Admiral Bobby R. Inman
Chairman and CEO
Westmark Systems, Inc.
Hon. Carol Laise
Ambassador, Retired
Fred Meuter
Manager, Executive Compensation
Xerox Corporation
William G. Miller
President
American Committee on U.S.-Soviet Relations
- 1 -
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The panel was assisted by a staff whose experience included
executive and legislative branch and intelligence agency positions.
Project Director was Don I. Wortman, former Deputy Director for
Administration of the Central Intelligence Agency and currently
Director of Federal Programs at the National Academy.
01.
nor To assis the panel, the IC established a Study Steering
.~Co mittee] (SStG1 to coordinate NAPA information requests and provide
'assistance in obtaining individual agency data or Community-wide
responses. Composed of senior personnel staff from each
intelligence agency, the members -- individually and as a group --
played a key role in facilitating the work of this study. The IC's
Office of Planning and Policy was a focal point on these efforts.
In preparing its study design, the NAPA panel reviewed the
requirements stated in the Authorization Act. These required that
the panel:
-- Examine the need for major change in the existing IC
personnel systems given the strategic trends in the
intelligence function and the economic, social, and
demographic trends in U.S. society.
Examine these personnel systems to ascertain if they will
be adequate to attract and retain the highest quality
personnel through the 1990s.
-- Analyze personnel issues facing the IC that may differ
greatly from those facing the federal government in general.
-- Compare the personnel needs and requirements facing the
individual IC agencies, with due regard for the differing
missions, risks, job requirements and environments of the
organizations in the community.
After further refining the subjects it would address, the seven-
member NAPA panel, assisted by its project staff, reviewed issues \
which encompass:
-- How anticipated changes in the U.S. workforce will affect
intelligence agencies.
-- The impact of future intelligence requirements on human
resource management systems, and how these systems might be
organized to meet changing needs.
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Different levels of compensation within the intelligence
agencies and how they compare to the rest of the federal
government and the private sector.
Recruitment and retention , especially as they relate to
critical skill occupations, and whether personnel security
requirements adversely affect agencies' ability to get
quality staff.
How well the agency career development and training
programs support current and future mission accomplishment.
Efforts the agencies have undertaken to make their
workforces more representative of all groups within the
U.S. population, and whether current levels of effort will
enable the agencies to continue to diversify their
workforces.
In addition, the Senate Select Committee on Intelligence
requested that NAPA review IC personnel costs and make appropriate
recommendations on ways to constrain these costs without adversely
affecting intelligence missions.
At the outset, the IC Staff, working with the SSG, developed
the broad terms of reference for the study, which became part of the
contract work statement. (See Attachment A to this Appendix.)
Early Data Gathering
NAPA requested background material from each agency on their:
- Organization, mission and structure.
- Personnel authorities and internal organization,
- Recent requests for statutory or regulatory change,
whether obtained or not.
- Experience in recruiting and retaining people
with critical skills,
- Personnel policies and practices,
- Anticipated future workforce issues,
- Competition among IC agencies in personnel programs*
- Other major issues/problems in personnel programs1
- Agency views on Terms of Reference issues,
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After reviewing the data supplied by the intelligence agencies,
NAPA staff met with the SSG, at their suggestion, for an intensive
two?.day series of briefings on these topics. The sessions provided
extensive familiarization in a compressed period, and permitted the
NAPA staff and the IC personnel to have a very useful give-and-take.
Structuring the Work Approach
so at all 'r n i it reviews the NAPA repor
Using this information as a base, the NAPA staff interviewed
intelligence agency officials and prepared a summary of each
agency's personnel authorities, practices and major issues. Acting
on behalf of the panel, NAPA project staff also reviewed working
papers of the Senate Select Committee on Intelligence, which had
itself conducted a review of IC agency human resource policies.
Because the Iran-Contra hearings arose just as the committee staff
members were preparing the SSCI report, it was not finalized. The
Committee decided epar 'Sffinal re pork -- and it may not do
At its April 1 meeting, the panel reviewed all of this material
and devised the workplan which served as the framework for most of
the analysis. Also at its April 1 meeting, the panel met with the
Senior Policy Management Group, which was established to provide
top-level input, should the panel desire it. These senior
representatives and staff of the House and Senate intelligence
committees joined the panel in a policy-level discussion of major
HRM issues. facing the Intelligence Community.
The ni.ne.areas the panel selected for primary focus were:
Intelligence Community uniqueness
Future mission of IC agencies
Workforce of the future
Creating a more diverse workforce
Staffing
Training and career development
Personnel security
Compensation and benefits
Organizational issues
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The panel requested and the intelligence agencies supplied
detailed information in each of these areas. The panel requested a
great deal of trend data, particularly because the 1980s were a
period of major staff growth for most agencies in the IC. Thus,
much of the panel's analysis was based on intra- and inter-agency
comparisons.
Having made its basic decisions as to scope of work and
methodology for undertaking it, the panel reported this to the
Congress in its first interim report, delivered through the DCI, on
May 1, 1988.
Preparing the Analysis
For each of the nine areas addressed, the staff developed for
the panel a series of analyses of major issues within them. Each
analysis addressed: current status, reason for the condition,
impact of the situation, and draft conclusions/recommendations. The
detailed papers which resulted from these analyses are included as
Volume II of this report.
The panel met July 12 to review the analyses for future
mission, workforce of the future, IC agency uniqueness, staffing,
training and career development and personnel security. Based on
the panel's decisions at that meeting, staff prepared for panel
review the second interim report to Congress.
'The panel carefully considered how to approach the complex area
of compensation and benefits. At its July meeting, the panel
approved dividing this work into three areas: comparative analysis
of agency compensation policies and practices; review of private
sector compensation systems; and study of specific NSA and CIA
prdposals. At its September 30 meeting, the panel reviewed the
detailed analyses in these areas, and specifically recommended that
the CIA be permitted to proceed with its proposal for a flexible
benefits plan. The agency did not need statutory approval to pursue
this, and the panel saw no reason for the CIA to delay
implementation until the panel issued its final report.
Also at the September meeting, the panel reviewed material it
had specifically asked be developed on agency separation and
outplacement programs, and the ability of intelligence agencies to
hire retired military personnel for work for which expertise could
only be acquired through military service. The panel also
determined its position on which of several organizational
alternatives it believed would enable the Intelligence Community to
better coordinate human resource change proposals.
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Based on these issue analyses, the panel developed its
recommendations, as reflected in Volume I of the final report.
Quality Assurance through Product Review
As it prepared all staff papers and report drafts, NAPA sought
comments from the IC Study Steering Group. This input, never
designed to persuade the panel to alter its judgment, ensured
accurate interpretation of information and helped the panel frame
its products in a manner that would make them more usable
decision-making tools.
Each panel member also individually reviewed the interim and
final reports. For the final report, the panel met October 31, 1988
to discuss members' reactions at length. Based on this feedback,
the NAPA project staff refined the final report, which was again
reviewed by all panel members.
The final report draft was also reviewed by NAPA's Director of
Academy Studies, who performs a quality assurance review of all
products.
398/ December 6, 1988
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Attachment A
to
Appendix A
Study of Intelligence Personnel Systems
Background
The Intelligence Authorization Act for Fiscal Year 1988 (Title
VII, Section 701) required the Director of Central Intelligence to
contract with the National Academy of Public Administration (NAPA).
for a comprehensive review and comparative analysis of the civilian
personnel management and compensation systems of the Intelligence
Community. The analysis is to include an assessment of the adequacy
of existing personnel systems to support the missions of the various
intelligence organizations. NAPA is also directed to make
recommendations for additional legislation and regulatory or other
changes that are deemed advisable to improve the effectiveness of
the separate systems.
Scope and Emphasis
For the purpose of the study, the "Intelligence Community" will
be CIA, NSA, DIA, State/INR, FBI/FCI, and the intelligence elements
of the military services.
The study is intended to be an objective, classified review of
the Intelligence Community's personnel management and compensation
systems. The aim is to provide a baseline understanding of the
effect of these systems on the ability of intelligence organizations
to perform current and future missions. In carrying out the study,
NAPA will examine issues and programs bearing on recruitment,
retention, and effective management of employees. Attention should
be paid to the consequences of pay and evaluation aspects of
personnel systems and to programs related to needs for certain
critical skills and occupations. Career development and employee
support programs should also be examined, as should infrastructure
support for personnel management. The interim and final reports
should also provide NAPA's recommendations regarding proposed and
potential legislation affecting the intelligence personnel systems.
Broad Objectives
The study should achieve the following broad objectives:
o An examination of the need for significant change in
existing Intelligence Community human resource management
systems implied in current economic, social, and
demographic trends.
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o An examination of present and planned Intelligence
Community personnel systems to ascertain if they will be
able to attract and retain the highest quality personnel
through the 1990s, including identification and
specification of necessary improvements and required
legislative proposals.
o A comparison of Intelligence Community personnel systems f
with the federal civil service, including identification
and analysis of personn67l issues facing* the Intelligence
Community that differ significantly from those facing the
federal government in general.
0 A comparison of the personnel needs and requirements
facing the individual members of the Intelligence
Community, with due regard for the differing missions,
risks, job requirements and environments of the agencies,
departments, and offices involved.
o Recommendations, if warranted, for legislative,
regulative, or other changes in personnel and/or
compensation programs based on the unique nature of
intelligence activities.
Areas of Inquiry
o Competition Intelligence Community competition for
human resources is primarily with the private sector. The
total compensation package (pay, benefits, and awards)
should be evaluated to determine what needs to be done to
make the Intelligence Community competitive in the 1990s
in the private sector market in which it competes.
o Security Special security, cover, lifestyle, and
professional restrictions should be examined to determine
how they should be recognized in the total compensation
packages.
o Rewards Mechanisms and programs for rewarding employees
should be evaluated.
o Training The resources necessary for retraining to meet
changing staffing requirements should be analyzed. Areas
that should be assessed include the adequacy of current
training and employee development programs throughout the
Intelligence Community (as they relate to occupational
skills training and the availability of training) and the
adequacy of resource commitments to these endeavors.
o Work Environment The quality of work environment in
each agency, including availability of appropriate
facilities and equipment, should be compared with
corresponding elements in the private sector.
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6w4 IL
o Retirement Systems Existing retirement systems should
be evaluated as both a managerial tool and an employee
incentive. The focus here should be derived from the
vagaries of ceiling and special skill needs and the
consequent expectation that age and promotion bubbles will
arise. The evaluation should emphasize problems of
plateauing and the need to ensure appropriate employee
throughput.
o Flexibility The changing and expanding nature of
intelligence requirements and the growing
interdisciplinary, interagency character of intelligence
work require managers to have greater staffing and pay 0
flexibility in organizing the ork for ce:?--T'he study IV,
should explore the appropriateness nd feasibility of
establishing alternatives to the General Schedule and/or '
restructuring the General Schedule to provide greater
management flexibility.
o Occupational Pay occupational pay should be evaluated
as an approach to pay administration.
o Leave and Benefits Alternative leave and benefit
programs should be evaluated with respect to the need to
accommodate the modern work force, which contains an
increasing number of dual-income families and single
parents.
o Career Development The adequacy of career development
programs in the face of dynamic change should be
examined. Attention should be paid to existing and
potential programs, including efforts to recognize the
roles of both managers and specialists.
o Wartime Operations The potential impact of wartime
operations on civilian personnel should be addressed,
especially with respect to the need for continuity of
critical functions in the US and overseas.
Steering and Guidance
A Study Steering Group (SSG), chaired by a member of the
Intelligence Community Staff, with representatives (one each) from
the Central Intelligence Agency, the National Security Agency, the
Defense Intelligence Agency, the Department of State's Bureau of
Intelligence and Research, the Federal Bureau of Investigation, and
..,US Army Intelligence (representing all the military services) will
be formed to guide and facilitate NAPA's work, to assure that
necessary support is provided from participating agencies, and to
assist the Intelligence Community Staff in carrying out its role as
agent for the DCI in reviewing and overseeing the study. The
Intelligence Community Staff will provide the Contracting Officer's
Technical Representative (COTR) for the study.
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The SSG will identify within each participating agency or
entity a focal point for all study-related activity within that
organization, including responses to NAPA's requests for
information. NAPA will coordinate all of its activities through
these focal points. Both NAPA and the focal points will keep the
COTR and SSG aware of progress and problems.
The SSG will receive guidance and overall direction from a
Study Management Policy Group (SMPG). The SMPG will be chaired by
the Director of the Intelligence Community Staff and will be
composed of NFIC-level representatives of the intelligence
organizations participating in the study. The SMPG will act for
the DCI in the review of the interim reports and will make
recommendations to the DCI regarding the final report.
Security
Names of the NAPA study team and panel will be provided to the
COTR prior to commencement of the study to assure that necessary
clearances are obtained from participating organizations.
The COTR will determine that NAPA is provided with suitable
secure office space and storage facililties. The focal point for
each organization will make such arrangements as may be necessary
for office space and secure storage facilities in individual
organizational locations.
Methodology and Study Organization
NAPA shall be responsible for the proposal of a study
methodology and organization which shall be subject to the approval
of the COTR after consultation with the Study Steering Group. The
COTR will convey to NAPA any special study focus and guidance
received from the Congressional Oversight Committees when it
becomes available. In defining the study's scope and tasks, NAPA's
proposal shall take into account the funding constraints in the
authorizing legislation as well as timing and other considerations
required for the interim and final reports.
Timing and Reports
The study will begin as soon as practicable after 1 January
1988. NAPA will provide interim reports on 1 May and 1 August
1988. The study will be concluded and a final report provided by
the DCI to the Oversight Committees on or before 20 January
1989.
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The purpose of the interim reports is to provide a means for
an assessment by the Congress of new or substantially modified
programs and compensations planned for early implementation. In
view of the limited time available to develop the interim reports,
the SSG should advise NAPA early in the study which such programs
should be evaluated. In addition to a report of progress on the
study in general, of particular interest is an analysis of existing
or proposed changes to personnel management and compensation
systems aimed at recruiting or retaining individuals with skills
critical to the missions of the Intelligence Community.
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