NATIONAL ACADEMY OF PERSONNEL ADMINISTRATION (NAPA) STUDY OF INTELLIGENCE COMMUNITY PERSONNEL SYSTEMS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00530R001002360010-4
• Release Decision: RIPPUB
• Original Classification: U
• Document Page Count: 14
• Document Creation Date: December 27, 2016
• Document Release Date: April 11, 2013
• Sequence Number: 10
• Publication Date: July 1, 1988
• Content Type: MEMO

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MEMORANDUM FOR:
Director
Intelligence Community Staff
Washington, D.C. 20505
ICS 4254-88
1 July 1988
Deputy Director for Administration
National Security Agency
SUBJECT: National Academy of Personnel Administration (NAPA)
Study of Intelligence Community Personnel Systems
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1. This memorandum provides an informal status report on the NAPA
personnel study, which has been under way since January 1988.
2. The NAPA study team has completed its baseline review of personnel
systems and identified the substantive areas that will be examined in depth.
Major subject areas to be covered include staffing, compensation, security,
and equal employment opportunity. One interim'report has been submitted to
the Congress (1 May); this report was principally concerned with the
organization of the study. A second interim report is scheduled for release
on 1 September; this report will address about two thirds of the substantive
areas to be studied and will also include comments on personnel system changes
relevant to the current legislative year.
3. The NAPA Project Manager and study team members have been especially
complimentary of NSA's performance on this study. NSA's responses to data
calls and information requests to date have been outstanding and have
established a clear standard for quality and timeliness. The highly
professional caliber of NSA's participation, coordinated by has
greatly aided the progress of the study. Your continued cooperation will help
ensure that the effort is concluded successfully and on time.
Director, Planning and Policy Office
STAT
STAT
STAT
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1/4.11
SUBJECT: National Academy of Personnel Administration (NAPA)
Study of Intelligence Community Personnel Systems
DISTRIBUTION: (ICS 4254-88)
Original - Addressee
1 - PPO Chrono
1 - PPO Subject
1 - ICS Registry
DCl/ICS/PPO,
1 July 1988 STAT
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INTERIM REPORT
PERSONNEL STUDY OF THE INTELLIGENCE COMMUNITY
As required in the Intelligence Authorization Act for
Fiscal Year 1988 (Title VII, Section 701), the Director of
Central Intelligence contracted with the National Academy of
Public Administration (NAPA) for a comprehensive review and
comparative analysis of the civilian personnel managment and
compensation systems of the Intelligence Community (IC). The
Academy has convened a Panel of public and private sector
officials (Attachment A), some of whom have held senior
intelligence posts, to assess the current situation and
recommend any legislative or regulatory changes deemed needed
to improve IC personnel system effectiveness.
The Panel is assisted by a project staff which develops
options and recommendations for the Panel's review. The staff
is comprised of retired intelligence agency employees, experts
in federal human resource management issues and experienced
analysts. The combination of diversity and experience will
permit critical questioning within a knowledgable environment.
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Prior to beginning detailed field work, the project
staff requested comparable personnel-related data from each
agency. The information was organized as follows:
Organization of Agency
Legal Basis for Agency Personnel Program
Changes in Personnel Programs since 1978
Major Issues/Problems in the Agency
Personnel Program
Changes Considered to be Needed in Controlling
Personnel Law and/or Regulation
Significant Changes Considered Needed in Personnel
Program and Which can be Made within Existing
Authorities but are Being Delayed by the 1988
Appropriation Act Conference Report Language
Experience in Recruiting and Retaining People
with Critical Skills
Addressing the Future Workforce Needs of the Agency
Overview of Current Personnel Policies and Practices
Competition between IC Agencies in Personnel
Programs
To further familiarize themselves with each agency's
personnel system and to become better acquainted with
cross-cutting issues, the project staff held an intensive
two-day meeting with representatives of the IC staff, the
Central Intelligence Agency (CIA), the National Security Agency
(NSA), the Defense Intelligence Agency (DIA), Military
Intelligence, the Federal Bureau of Investigation (FBI) and the
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State Department's Bureau of Intelligence and Research (INR).
This off-site session provided the requisite background for
project staff to develop separate profiles and issue statements
for each of the agencies.
After analyzing information on each agency, project
staff developed a matrix which compared like data, with
emphasis on the history of changes to the different personnel
systems and on changes now perceived needed. This matrix will
be further refined throughout the study, and will provide the
framework for the comparative analysis requested by the
congressional Intelligence Committees.
Using this information, the NAPA Panel held its first
meeting April 1, 1988. During that session, its members met
with staff of the House Permanent Select Committee on
Intelligence and the Senate Select Committee on Intelligence
and, separately, with senior leaders of the intelligence
community. Discussion with Committee staff provided background
on congressional rationale for the study and expectations for
results. Senior agency representatives further discussed
employment trends and impediments the current personnel systems
impose on effective operations.
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C.J
Some Tentative Conclusions
The IC personnel systems range from close adherence to
Title 5 (that part of the U.S. code that relates to personnel
and is overseen by the Office of Personnel Management) to more
flexible systems such as those of CIA and DIA. A major
difference between staff of intelligence agencies and those of
other government entities is the security requirement and the
ensuing lifestyle limitations. This is often cited as the
major reason IC agencies believe their staffs should be
compensated at a higher rate than other civil servants. In
addition, IC staffs cite stronger competition from the private
sector for their top talent -- that on board and potential
recruits.
In examining staffing patterns and vacancy rates
available to date, the Panel cannot see clear patterns of staff
shortages in the critical skill areas of engineering, computer
science, languages or mathematics. What cannot yet be
determined is whether the quality of candidates now recruited
is as high as that of the past, or whether the more attractive
private sector salaries and benefits are attracting the best
recent graduates or most talented current employees. Because
the IC agencies report little long-range workforce planning, it
is not clear whether staff shortages will be a more critical
problem in the next 10 years. Further investigation will be
conducted in this area.
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There are variations in pay and benefits patterns among
the intelligence agencies, and these do cause morale and equity
problems, especially overseas. For example, Foreign Service
and CIA employees receive more generous overseas allowances
than do DIA and most NSA employees (the latter's cryptologists
do get the added allowances). Thus, even if they work in the
same hallway doing the same level of work, the staffs receive
varying paychecks. More detailed analysis will be conducted in
this area.
Issues to be Analyzed
The Panel will examine these issues in the context of
the current and existing mission of the IC agencies. However,
given the uncertainty in projecting future missions, major
emphasis will be placed on suggesting changes that would permit
design of systems sufficiently flexible to meet a wide range of
operating options.
The Panel concluded that the primary areas of
investigation will be total compensation, training and career
development, staffing, equal employment opportunity, and future
Human Resources Management (HRM) needs of the IC agencies.
These areas will be examined in the context of the broad
issues stated in the Authorization Act and the contract:
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whether the present and planned HRM systems will be able to
attract and retain the highest quality personnel; whether there
is a need to significantly alter HRM systems to meet future
change; and whether there are significant differences in the
HRM problems confronting the intelligence community agencies in
contrast to other federal agencies and in contrast to each
other.
The focus of inquiry for each area to be examined is:
1. Total Compensation
--Examine pay from two aspects: the impact of the
pay cap and the need for increased agency flexibility in the
use of the pay system within cap limits.
--Examine benefits from two aspects: whether the
nature of intelligence work justifies benefits enhancement and
whether the intelligence agencies need increased flexibility in
using benefits to better meet the needs of a changing workforce.
--Examine compensation and benefits comparability
for staff in overseas assignments including a comparison with
the Foreign Service.
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--Examine specific pay and benefit issues -- cited
in the contract and/or developed in the course of the study --
which affect the ability of the intelligence community agencies
to compete with the private sector and with other federal
agencies for top quality personnel.
--Develop comparative data on the costs of federal
staff as compared to contract staff.
--Determine whether the dual compensation
provision for retired military officers is an impediment to
recruitment for positions that require military experience.
2. Career Development and Training
--Examine the career development programs to
determine how they support current and projected staffing and
skill needs of the agencies.
--Examine the training and retraining programs in
the agencies and how they are linked to improving job
performance and meeting current and future skill needs.
--Examine the resources for training and career
development programs.
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C.=.)
--Examine how workforce and succession planning
programs are used to define and guide staffing, training and
career development grogram needs of the agencies.
3. Staffing
--Determine current and projected skill shortage
and retention problems which threaten accomplishment of agency
missions.
--Examine the impact of the more stringent
personnel security requirements of the IC agencies on the
ability of the agencies to compete in the labor market.
Included here will be whether the length of time between an
offer of employment and entry on duty causes some good
candidates to accept other positions.
--Examine projections of agency staffing needs
from the current staff base. Assess the impact of
congressional personnel authorizations for the IC agencies and
the effect of congressional action on pay and benefits.
--Explore the possibility of assessing the quality
of new staff, being employed and retained now and in the future.
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14.407
4. Equal Employment Opportunity
--Develop a grade/sex/race profile.
--Examine occupational distribution in terms of
race and sex.
--Determine what each agency is doing to enhance
the representation of female and minority staff in the
organization.
5. Organizational Issues
--Examine the role of the DCI in providing
guidance and direction to the intelligence community agencies'
HRM programs and for performing an on-going oversight of HRM.
The Panel also consi ered examining the potential impact
of war-time operations on those intelligence functions heavily
dependent on civilian personnel. While recognizing the
importance of this issue, the Panel believed it to be beyond
the scope of the study envisioned in the Authorization Act.
The study will be directed primarily to the CIA, NSA,
DIA, and FBI. Redesign of the civilian personnel systems of
the military intelligence agencies is underway, and is not
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Ls)
scheduled for implementation until October 1988. The Panel's
findings and recommendations should be useful in assessing
these changes. Study of the State INR activity will be
limited, given that this is a small portion of that
Department's work and is largely designed to make intelligence
data useful to the Secretary rather than to collect or produce
it for more general purposes.
Schedule for Studies
The Panel's work is organized to reflect the interim and
final reporting dates specified in the Authorization Act. The
work done to date is summarized in the initial pages of this
report.
Between May 1 and September 1, the Panel will review
issues associated with staffing, equal employment opportunity,
career developmeht and training, and will complete a baseline
comparison of the agencies' personnel systems. The September 1
report will contain findings and tentative recommendations in
these areas.
By early October 1988, the Panel expects to complete its
work in total compensation and organizational issues. It will
meet to discuss these issues and the overall thrusts of the
final report. By early November, the project staff will
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prepare the initial draft of the January 1989 report, and the
Panel will meet to review it. Thus, by December 1988, the
final report should be nearing completion.
Agency Initiatives
The Conference Report notes that the NAPA study will
provide a baseline for a comprehensive review by the
intelligence committees of all intelligence agency personnel
needs, and states the conferees' belief that non-urgent,
significant changes should be reviewed carefully before the
final NAPA report is issued. Thus, the NAPA Panel has been
careful to stay aware of those issues the intelligence agencies
would like to have implemented in the near future.
Note: Only CIA indicates need to move ahead. This section
will be drafted after April 12 meeting with CIA on
proposals.
Attachment: As Stated
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-LraNra, rut(INTVA]LlUELV-i
-6'w COMMUNITY PERSONNEL STUD'
PHILIP ODEEN* - PANEL CHAIR: Regional Managing Partner, Coopers and
Lybrand. Served as Vice President for Financial Planning and
Corporate Services, Wilson Sporting Goods, Co.; Director of Program
Analysis, National Security Council and Principal Deputy Assistant
Secretary of Defense for Systems Analysis. Also has been Chair of
the Washington World Affairs Council and Subcommittee Chair on
President's Commission on Military Compensation. Assisted Frank
Carlucci in study of National Security Council Staff.
JULIUS BECTON - Director, Federal Emergency Management Agency,
retired as a Lieutenant General of the U.S. Army in 1983 from the
position of Deputy Commanding General of the Army's Training and
Doctrine Command. He had been Commander of the 7th Corps in Germany
and of the 1st Cavalry earlier in his career.
JAMES COLVARD* - Assistant. Director for Tactical Systems, Applied
Physics Laboratory at John Hopkins University. He has served as
Deputy Director, Office of Personnel Management; Deputy Chief of
Naval Materiel; Technical Director, Naval Weapons Laboratory; and
Technical Director, Naval Surface Weapons Center.
BOBBY INMAN* - Chairman and CEO, Westmark Systems, Inc. Former
Chairman and CEO of Microelectronics and Computer Technology
Corporation. Served as Deputy Director of Central Intelligence
and Director of the National Security Agency.
CAROL LAISE* - Ambassador, Retired. Served as Assistant Secretary
of State for Public Affairs, Director General of the Foreign
Service, Ambassador to Nepal, and Director of the Division of South
Asian Affairs. Member of the Council on Foreign Relations.
FRED MEUTER - Manager, Executive Compensation, Xerox Corporation.
Twenty-nine years of broad-based compensation experience with major
corporations, e.g. TRW and 3M. Combat Intelligence Officer, U.S.
Air Force during Korean conflict. FBI Special Agent for six years.
WILLIAM MILLER* - President, American Committee on U.S. Soviet
Relations. Has served as Associate Dean and Adjunct Professor,
Fletcher School of Law and Diplomacy, Tufts University; Staff
Director, Senate Select Committee on Intelligence; Special Assistant
to Senator John Sherman Cooper of Kentucky; and as a Foreign Service
Officer in Washington and Iran.
*Academy Members
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