THE INTELLIGENCE WORKFORCE FOR THE 1990S: A REVIEW OF PERSONNEL AND COMPENSATION SYSTEMS TO MEET CURRENT AND FUTURE MISSIONS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00530R000200250002-6
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 11
• Document Creation Date: December 27, 2016
• Document Release Date: February 13, 2013
• Sequence Number: 2
• Publication Date: January 19, 1989
• Content Type: REPORT

Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
National Academy of Public Administration
Chartered by Congress
National Academy of Public Administration
The Intelligence Workforce for the 1990s:
A Review of Personnel and Compensation Systems
to Meet Current and Future Missions
Philip A. Odeen, Chair
Julius W. Becton
James Colvard
Bobby R. Inman
Carol Laise
Fred Meuter, Jr.
William G. Miller
STAT
1120 G Street, N.W., Suite 540 Washington, D.C. 20005 [phone]
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
Officers of the National Academy
Joseph L. Fisher, Chairman of the Board
Astrid E. Merget, Vice Chairman
Ray Kline, President
Sheldon S. Cohen, Secretary
Anita Alpern, Treasurer
Academy Studies
Roger L. Sperry, Director
National Academy Panel on Intelligence Agency Personnel Systems
Philip A. Odeen, Chair
Honorable Julius W. Becton
James Colvard, Ph.D.
Admiral Bobby R. Inman
Honorable Carol Laise
Fred Meuter, Jr.
William G. Miller
Project Staff
Project Director
Frank A. Yeager, Deputy Project Director
Sammie Bear, Executive Assistant
John M. Clarke, Research Associate
Joseph W. Howe, Research Associate
Elaine L. Orr, Writer/Editor
Donald E. Smith, Research Associate
Winifred Steinbach, Secretary
John R. Wilson, Research Associate
James Y. Sweet, Research Associate
STAT
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
VOLUME TWO
Appendices
A. Scope and Methodology
B. Intelligence Agency Compensation Programs
C. The Central Intelligence Agency Flexible Benefits
Proposal
D. Compensation Experiences of Some Other Organizations
E. Agency Removal Authorities, Staff Reduction Policies and
Outplacement Programs
F. Agency Staffing Programs
G. Impact of Personnel Security on Recruitment
H. Agency Efforts to Create a Diverse Workforce
I. Agency Training and Career Development Programs
J. Summary of Employment-Related Restrictions on IC
Personnel
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6
List of Acronyms
ACTEDS Army Civilian Training, Education and Development System
CIA Central Intelligence Agency
CIARDS CIA Retirement and Disability System
CIPMS Civilian Intelligence Personnel Management System
CSRA Civil Service Reform Act
CSRS Civil Service Retirement System
CSS Central Security Service
DCI Director of Central Intelligence
DIA Defense Intelligence Agency
DIC Defense Intelligence College
DISCAS Defense Intelligence Special Career Automated System
DOD Department of Defense
DOE Department of Energy
FBI Federal Bureau of Investigation
FCI Foreign Counterintelligence
FEGLI Federal Employees Group Life Insurance
FEHBP Federal Employees Health Benefits Program
FERS Federal Employees Retirement System
FES Factor Evaluation System
FS Foreign Service
FSI Foreign Service Institute
GAO General Accounting Office
GETA Government Employees Training Act
GS General Schedule
HPSCI House Permanent Select Committee on Intelligence
HRM Human Resources Management
HUMINT Human Intelligence
IC Intelligence Community
ICDP Individual Career Development Plan
ICS Intelligence Community Staff
INR Bureau of Intelligence and Research
MSPB Merit Systems Protection Board
NCS National Cryptologic School
NFIC National Foreign Intelligence Committee
NFIP National Foreign Intelligence Program
NSA National Security Agency
OPM Office of Personnel Management
OTE Office of Training and Education (CIA)
PATCO Professional/Administrative/Technical/Clerical/Other
RIF Reduction in Force
SCI Sensitive Compartmented Information
SSCI Senate Select Committee on Intelligence
TPF&C Towers, Perrin, Forster & Crosby
U.S.C. United States Code
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13 : CIA-RDP90-00530R000200250002-6
APPENDIX A
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 reports, due May 1 and August 1, 1988. To meet this
mandate, the IC Staff contracted with NAPA, using funds the
Congress earmarked for this purpose.
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
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6
UCIi J. ' -
The panel was assisted by a staff whose experience included
executive and legislative branch and intelligence agency
positions. Project Director was former Deputy 25X1
Director for Administration of the Central Intelligence Agency and
currently Director of Federal Programs at the National Academy.
To assist the panel, the IC established a Study Steering Group
(SSG) 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.
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13 : CIA-RDP90-00530R000200250002-6
v V~ L L ~
-- 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 programs.
-- Agency views on Terms of Reference issues.
Secret
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13 : CIA-RDP90-00530R000200250002-6
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
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 to wait until it reviews the NAPA report before
preparing a final report -- and it may not do so at all.
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 nine 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
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13 CIA-RDP90-0053OR000200250002-6
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
proposals. 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.
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13 : CIA-RDP90-00530R000200250002-6
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.
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-00530R000200250002-6
 Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6
Next 172 Page(s) In Document Denied
Declassified in Part - Sanitized Copy Approved for Release 2013/02/13: CIA-RDP90-0053OR000200250002-6