THE SUPPORT SERVICES HISTORICAL SERIES THE OFFICE OF PERSONNEL: SPECIAL ACTIVITIES STAFF, 1957-70

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00708R000200150001-1
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 57
• Document Creation Date: November 16, 2016
• Document Release Date: January 10, 2000
• Sequence Number: 1
• Publication Date: November 1, 1971
• Content Type: REPORT

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SECRET
CIA Internal Use Only
Access ControZZed by DD/S
The Support Services
Historical Series
THE OFFICE OF PERSONNEL:
SPECIAL ACTIVITIES STAFF, 1957-70
SECRET
OP - 3
November 1971
Copy 2 of 3
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WARNING
This document contains information affecting the national
defense of the United States, within the meaning of Title
18, sections 793 and 794, of the US Code, as amended.
Its transmission or revelation of its contents to or re-
ceipt by an unauthorized person is prohibited by law.
GROUP I
Exd4ded from automatic
downg odinp and dedaasificoIion
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Access Controlled by DD/S
THE OFFICE OF PERSONNEL:
SPECIAL ACTIVITIES STAFF. 1957-70
25X1A
by
25X1A
Harry B . Fis r
M
Director of Personnel
HISTORICAL STAFF
CENTRAL INTELLIGENCE AGENCY
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Page
Summary . . . . . . . . . . . . . . . . . . . . . . . . . . 1
I. Development of the Special Activities Concept . . . . . 3
A. Arrangements before 1957 . . . . . . . . . . . . . . 4
B. Designation of the Special Assistant to the
Director of Personnel, 1957 . . . . . . . . . . . 4
25X1A
C. Designation as the Special Activities Staff,
1963 . . . . . . . . . . . . . . . . . . . . . . . 5
II. Highlights of Special Activities Programs . . . . . . . 6)
A. Selection Out, 1958 . . . . . . . . . . . . . . . . 6
B. The M Program, 1961 . . . . . . . . . . . . . . 13
C. Separation Compensation, 1961 . . . . . . . . . . . 21
D. The Panels . . . . . . . . . . . . . . . . . . . . 24
1. Applicant Review Panel, 1953. . . . . . . . . . 24
2. Overseas Candidate Review Panel, 1957 . . . . . 27
E. The CIA Personnel Evaluation Board, 1954. . . . . . 32
F. The Career Conversion Program . . . . . . . . . . . 38
G. Custodian of Sensitive Personnel Information. . . . 43
H. Development of Agency Regulations and Handbooks . . 46
I. Consultant Service to Offices and Career
Services on Personnel Problem Cases . . . . . . . 48
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Appendixes
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A. Chronology: 1957-1970
B. Memo from DCI for Deputy Directors, 17 Feb 58, subj: Person-
nel Selection Out Procedures. CIA INTERNAL USE ONLY.
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E. Memo from Acting DD/A for D/Pers, C/MS & D/Sec, 15 Jul 53,
sub: Procedure for Reviewing Suitability of Applicants
for CIA Employment. C.
G. Memo from DDCI for Deputy Directors, 30 May 64, sub: CIA
Personnel Evaluation Board. S/EYES ONLY.
H. Application for Membership in the Career Staff of the Central
Intelligence Agency. S.
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Summary
From the establishment of CIA in 19+7 until the early
1950's, a primaxy responsibility of the Office of Personnel was
one of filling vacant positions. Employees unable to perform
the duties of one job were usually given another. The cases of
employee misconduct which arose during that period were handled
by the usual Civil Service procedures.
Beginning in 1953 the Agency's rate of growth began to
slow somewhat and more attention was focused on individual pro-
ductivity and suitability. More and more employees began to
be identified as non-productive. Many left the rolls after
being advised of their situation and the fact there was no other
position for them in the Agency. Some, however, refused to
leave. There was reluctance to process their cases using the
Civil Service procedures, mainly because the employee would have
a final appeal to the Commission itself and it was felt that
the security of intelligence sources and methods would be placed
in jeopardy. Finally, in 1957 the then Director of Personnel,
Mr. Gordon M. Stewart, designated as the
Special Assistant to the Director of Personnel to help resolve
that impasse.
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At first the Special Assistant was concerned primarily with
performance and conduct cases. In addition, his staff furnished
the clerical support and executive secretary for the Agency's
Disposition Board, now called the Personnel Evaluation Board.
Beginning in 1958, performance cases were processed by the staff
under the provisions of the Agency's selection out program. In
that year responsibilities for the Applicant Review Panel and
the Overseas Candidate Review Panel were added to the staff.
Starting in 1961 the staff also played the major rc+1< in
Agency's "701" surplus program and separation compensation
program. In 1962 the staff was given responsibility for the
management of the Agency's career conversion program as well as
the program for the integration of "Eyes Only" personnel in-
formation. Since 1963 the staff has been called the Special
Activities Staff (SAS). Throughout its existence, the staff
has been responsible for developing regulatory material con-
cerning conduct and discipline, procedures for handling adverse
action cases, and the like.
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The Office of Personnel:
Special Activities Staff
1957-70
I. Development of the Special Activities Concept
The staff was organized as of 19 September 1957 under the
Special Assistant to the Director of Personnel on the concept
that within the broad framework of Agency personnel activities
there are certain "special" personnel activities that can best
be performed by a compact staff consisting of persons who:
1) are broadly trained and experienced in evaluative
techniques;
2) are experienced in Agency standards of performance
and behavior as well as other pertinent criteria;
3) have access to all pertinent and necessary records,
including confidential records; and
L1) have had sufficient continuity in the assigned
functions to permit the application of a longer as well
as a wider view.
Generally, such "special activities" as have been successively
assigned to the Special Assistant include those which relate
to any action having an adverse effect on an employee's status
with the Agency (such as separation, demotion, suspension),
as well as certain functions relating to initial selection,
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conversion to Career Employee status, and suitability for over-
seas assignment.
A. Arrangements Before 1957
Prior to the designation of the Special Assistant in 1957,
the functions currently assigned to the Special Activities
Staff were handled in various ways by different components of
the Office of Personnel. Certain of the more serious problem
cases were handled directly by the Director of Personnel. Other
personnel problem cases were handled by the former Employee Re-
lations Division and by the Placement Division. Career conver-
sion matters were handled by the former Research and Development
Staff. Applicant Review Panel matters were a responsibility of
the Chief, Placement and Utilization Division. Separation cases
were at that time subject to the same separation authority ap-
plicable to all Federal agencies, and use of this authority
entailed the possibility of appeals to the United States Civil
Service Commission.
B. Designation of the Special Assistant to the Director of
Personnel, 1957
On 19 September 1957, as designated
"Special Assistant to the Director of Personnel" by the then
* As of July 1970.
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Director of Personnel, Mr. Gordon M. Stewart. The primary
responsibility assigned to the Special Assistant and his staff
was one of implementing a program then in the early stages of
development for selecting out Agency "deadwood." Later, addi-
tional duties were added to the staff--responsibility for the
Applicant Review Panel, the Overseas Candidate Review Panel,
and the Career Conversion Program.
C. Designation as the Special Activities Staff, 1963
In 1963, following a survey of the office of Personnel,
the office was redesignated Special Activities Staff, Office
25X1A of Personnel, with essentially the same functions and delega-
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tions of authority. continued to be designated as
the Special Assistant to the Director of Personnel.
The Special Assistant has always reported directly to the
Director of Personnel. The Special Activities Staff has been
a compact staff, in keeping with the nature and confidential
aspect of its responsibilities. Generally, throughout its
history the staff has consisted
Turnover of personnel has been
relatively light, which has also been conducive to good secu-
rity practice.
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II. Highlights of Special Activities Programs
A. Selection Out, 1958
During 1957, studies were undertaken by the Office of Per-
sonnel having as their purpose the development of procedures
involving the identification and release of persons "whose re-
cord of past service and behavior /adj been satisfactory but
whose continued employment Lwoul~ impair the efficiency of the
Agency." The thought behind these studies was that there was
an unusually high percentage of individuals on Agency rolls who
were of marginal utility. Even though their official records
were not sufficiently unsatisfactory to warrant dismissal for
cause, they were contributing little or nothing to the Agency;
and, in any case, were blocking advancement opportunities for
younger, more promising individuals. These studies resulted
in a formal proposal to the Deputy Director of Central Intelli-
gence (General Cabell) in January 1958, which led directly to
Mr. Dulles' directive of 17 February 1958 to the Deputy Direc-
tors establishing the Selection-Out Program.
The DCI directive (Appendix B), after noting the rapid
rate of increase of personnel during the period of the Korean
War, went on to adopt certain procedures "the purpose of which
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L7wa.7 to identify and release from employment persons whose
effectiveness is sub-standard." The procedures adopted for
implementing this policy and program were of considerable im-
portance and represented an important new departure within the
Agency in the handling of personnel problem cases. Prior to
the adoption of this program, the Agency's policies and proce-
dures for dealing with prospective separation cases were more
of an improvised nature, and the treatment to be afforded a
particular case varied considerably with the case. The Selection
Out Program adopted in February 1958 established for the first
time within the Agency procedures which were intended to pro-
tect the interests of both the individual and the Agency. In
the course of time, these procedures became sufficiently well
known, not only to personnel and administrative officers but
also to employees generally, to be characterized as something
that all concerned could depend on, and which, by their nature,
involved principles of fair play. Briefly, the basic procedures
were as follows:
a. Individuals to be considered for "selection out" were
to be identified by the heads of the various Career Services.
Such identification was to be based on annual reviews to be made
by Career Service Boards and Competitive Evaluation Panels.
(In 1959, after gaining some experience with the program, the
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Director modified the policy with respect to the annual review.
He directed that less dependence be placed on the annual review
and the ranking of candidates for selection out and that more
emphasis be placed on taking action at the time a substandard
employee was first identified.)
b. After identifying individuals to be proposed for
selection out, the Head of the Career Service concerned was
obliged to consult with the Special Assistant to the Director
of Personnel on the case prior to the initiation of formal action.
Following such consultation, the Head of the Caxeer Service was
then obliged to notify the individual of his decision and to
refer the individual to the Office of Personnel for a formal
review of the case.
c. In reviewing each case, the Office of Personnel (the
office of the Special Assistant to the Director of Personnel)
afforded the individual every opportunity to be heard. This in-
cluded an opportunity to submit written comments, an opportunity
for a personal hearing, and an opportunity to call witnesses.
Following such reviews by the office of the Special Assistant to
the Director of Personnel, the case was then reviewed personally
by the Director of Personnel. The Selection-Out Program was pred-
icated on the use of the DCI's special termination authority
(Section 102(c) of the National Security Act) which provided that:
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Notwithstanding the provisions of Section 6 of
the Act of August 24, 1912 (37 Stat. 555), or
the provisions of any other law, the Director
of Central Intelligence may, in his discretion,
terminate the employment of any officer or em-
ployee of the Agency whenever he shall deem such
termination necessary or advisable in the interests
of the United States ... .
Any recommendation by the Director of Personnel that an
employee be separated necessitated the forwarding of a formal
recommendation to the Director of Central Intelligence. This
permitted the individual to make a further appeal to the DCI--as
a matter of practice, such appeals were reviewed by the Office
of the Inspector General. This appeal arrangement permitted the
individual a final opportunity to add to the record anything he
considered pertinent, including complaints as to the procedures
themselves.
d. Following an adverse decision by the DCI, an individual
whose termination had been directed was allowed approximately 30
days on Agency rolls and an opportunity to avail himself of all
entitlements and benefits, such as outplacement assistance, an
opportunity to apply for retirement if eligible, and the like.
As a result of this sort of handling, feelings of bitterness
toward the Agency were mitigated in most cases prior to the
individual's departure. The following table shows the number
of employees who were actually separated by the Director or who
resigned or retired in lieu of separation during the most active
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period of the Selection-Out Program from 1958 to 1964.
Calendar Years, 1958-64
Year
Separated
Resigned
in Lieu
Retired
in Lieu
Total
1958
11
22
13
46
1959
6
13
1
20
1960
5
11
1
17
1961
3
13
o
16
1962
1
1
0
2
1963
0
4
0
4
1964
o
1
o
1
Total
26
65
15
l06
Of the 106 employees "selected out" during the period
1958 to 1964, only two turned to the courts for further redress.
Both lost their cases. As far as the Agency was concerned, the
cases did lend support to its decision to use the Director's
special authority in removing employees for reasons of miscon-
duct, poor performance, or any other reason. One of the cases
which went to court involved a GS-13 employee who had spent most
of his Agency career in the Clandestine Service. He had been
regarded as uncooperative and headstrong for a number of years.
Finally in 1959 the Deputy Director for Plans recommended to
the Director of Personnel that he be separated. His case was
heard by the Special Assistant, following which the Director
of Personnel recommended that he be separated. His appeal was
heard by the Inspector General, who recommended that the employee
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be reassigned for a one-year period to a position within the
Directorate of Intelligence, to permit the employee to attain
retirement age 60. Approximately one year later the Deputy
Director for Intelligence then recommended to the Director of
Personnel that the employee be separated. The case was again
considered by the Special Assistant. The Director of Personnel
recommended to the Director that the employee be separated. The
employee again appealed to the Inspector General, who this time
sustained the Director of Personnel's recommendation, and the
Director decided that the employee should in fact be separated.
Following his termination the employee sued in the District
Court for the District of Columbia. The Court noted that this
case was "not a termination for security reasons but for lack
of suitability for the position in grades available" and granted
a Government motion for summary judgment. The employee appealed
that decision, and the US Court of Appeals for the District of
Columbia affirmed the action of the District Court. In its
opinion the Appellate Court emphasized that Section 102(c) of
the National Security Act fixes in the Director of Central Intel-
ligence "a broad discretion to terminate employees in the in-
terest of the United States."
In the second case the Chief, TSD/DDP in 1959 recommended
to the.Director of Personnel that a GS-12 employee be separated
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due to his uncooperative attitude over a considerable period
of time. The case was heard by the Special Assistant, following
which the Director of Personnel recommended to the Director that
the employee be separated. The employee's appeal to the Director
was heard by the Inspector General and subsequently the Director
decided that the employee should be terminated. Following his
termination the employee went to the Court of Claims alleging
wrongful termination based on violations of the Veterans Prefer-
ence Act and regulations of the Civil Service Commission and the
Agency. The Court decided for the Government and in its opinion
stated that Section 102(c) clearly gives the Director of Central
Intelligence the absolute right to terminate any employee when-
ever he deemed it necessary or advisable. The Court found no
violation of regulations or the Veterans Preference Act. The
Supreme Court refused to grant a writ of certiorari in that case,
thus leaving undisturbed the decision of the Court of Claims.
In each case, the Court reviewed the Director's action to deter-
mine -whether it was consistent with internal Agency procedures.
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B. The "701" Program, 1961
Originally proposed by the Director of Personnel to the
Deputy Director of Central Intelligence in November 1959 as
part of a Professional Manpower Control Program for the Clan-
destine Service, the 701 Program, as it came to be called, was
officially adopted with the issuance of
The study which accompanied the original proposal pointed
out that the Clandestine Service Career Service would not be
able to maintain a proper level of operational activity unless
steps were taken to provide for the recruitment annually of a
substantial number of capable young officers and for their ad-
vancement at a reasonable pace. It was felt that to recruit
these young officers, the service must separate an equal number
annually. In order to promote them, it was stated, a means must
be found to effect such separations among personnel occupying
middle and higher grades since normal attrition would not accom-
plish these separations. Although primarily intended for use
in smoothing out the age and grade "hump" in the Clandestine
Service by an annual selection out process in these grades,
the program was also offered as an instrument for any planned
reduction in staff.
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In actuality, the long-range manpower planning and control
aspects of the proposals were never realized. The 701 Program
developed as a surplus-personnel program and was implemented,
at least as far as the Clandestine Service Career Service was
concerned, on the concept of "purifying" the service by the
elimination of marginal personnel.
Individuals were ranked in the various grades as to suit-
ability for employment and retention value, with the lowest
ranking employees in all grade levels "tapped" for selection
out. These determinations were accomplished by the Career Serv-
ice panels in the Clandestine Service, which had to review and
consolidate initial recommendations from the various operating
officials. Panel rankings and nominations were subject to review
by the Head of the Career Service and changes were frequent at
each step in the process. Final results were sent to the Direc-
tor of Personnel, who convened review committees of three Agency
employees for each grade level from GS-9 through GS-15. None
of the Committee members were from the Clandestine Service Career
Service, and they were asked to render final judgment and recom-
mendations to the Director. The review committees for the various
grade levels appointed by the Director of Personnel on 21 Septem-
ber 1961 to review the relative retention standing exclusively
for the Clandestine Service surplus program consisted of the
following:
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Committee
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Date Report
Grade Level Submitted
Reviewed to D/Pers
? 9 17 Oct 61
14
6 Nov 61
13 Oct 61
17 Oct 61
8 Nov 61
27 oct 61
The intermingling of the surplus and marginal concepts led
to numerous dissatisfactions. Management was dissatisfied with
the almost complete failure of the fitness reporting system to
document actions being taken. A credibility gap opened between
management and the employee as to the real purpose to be served
by the exercise. A number of those considered for separation had
no prior warning in fitness reports or from conversations with
supervisors that their performance was unsatisfactory. Others
who had good records learned with dismay that they lacked poten-
tial for further Agency employment. In a few cases individuals
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chosen for separation were asked by their office to remain on
duty as a convenience to the Agency until a suitable replacement
could be found. At the very end of the Program in 1962, the
personnel folders were reviewed personally by the Deputy Director
of Central Intelligence, General Marshall Carter, as one of his
first official acts upon assuming office. One consequence of
General Carter`sreview was the initiation of the integration of
personnel information program discussed in Section G, page 43,
below.
The effect of the Program on morale and recruiting
was correctly predicted by the Director of Personnel in his
November 1959 proposal, which is quoted in toto:
The traditional approach to a large scale reduction
or staffing change is to do it as quickly as possible, and
then start afresh. Take your public beating, and expect
that the incident will soon be forgotten. This approach has
merit and should be followed in solving part of the problem
of the clandestine services. There should, in other words,
be one 'reduction of surplus personnel' and every effort
should be made to include in it all persons who can be
spared at that time. This would then be followed by a
lively selection-out and early retirement program which
would meet the further requirements of the service.
a. It is our opinion that the initial
sizeable separation action will have a profound
effect on morale. The Clandestine Services
Career Service is a tightly knit group. Popular
officers will of necessity be included among
those to be separated. At the same time there
is a strong feeling of frustration widespread
among the best Clandestine Services officers
which has its origin in the Agency's apparent
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inability to solve the manpower problem. In
balance, it is our estimate that no permanent
harm will be done to the Clandestine Services
by undertaking a broad separation action.
b. Annual selection out will never be
popular. It is not popular among those services
that practice it. It will be an obstacle to
recruitment, but one that can be met. Over a
period of time, we will be able to develop and
expand information programs and services that
will help employees adjust their thinking to
25X1 C []selection out.
The role of the Director of Personnel in the program, aside
from having suggested it originally, was to establish the proce-
dures for use by the career services in identifying the so-called
surplus personnel, determining those to be terminated or trans-
ferred., arranging for the authorization and payment of separation
compensation, and other related matters. Prior to the publication
of the regulation, the question of the Director's authority to
undertake such a program was carefully checked with both Con-
gressional and Presidential sources, since the Navy had considered
it necessary in 1958 to obtain statutory authority to conduct
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a "hump" reduction program among its officer personnel. The
decision was eventually received that the existing authority
of the Director of Central Intelligence was sufficiently broad
to permit him to conduct such a program and indeed to award
separation pay. Responsibility for administering the program
for the Office of Personnel was assigned to the Special Assist-
ant to the Director of Personnel at the time
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certain policy and procedural questions and attempted to cover
these in advance, many questions were encountered when the
program actually began which had to be resolved along the way.
These involved such matters as the reassignment consideration
to be afforded surplus individuals, with the issue being the
insistence in some cases by the Clandestine Service that selec-
tion out of the service meant selection out of the Agency.
Other problems included the treatment to be afforded those in-
dividuals eligible for retirement or soon to be eligible for
retirement, the hearing of appeals, numerous questions relating
to the payment of separation compensation, and an endless number
of other questions.
Although the DDP "surplus exercise" was the most dramatic
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partly because of the number of individuals involved
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and partly because of the reaction of top management to this
particular exercise, the record shows that there were several
other "701 exercises" which were accomplished
dth relatively little fanfare. The first of these in
fact was a DDP surplus exercise which attracted very little
attention because it involved a relatively small number of TSD
personnel. Listed below are the "701" exercises accomplished
the approximate dates of their initiation, and
the numbers involved in each exercise.
Summary of "701" Cases
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Career Component
Total
d
t
and Date Initiated
Surplus
Retained
Retired
Resigned
e
Termina
Technical Services
may 1961
3
0
1
0
2
Administrative Officers
June 1961
7
3
2
0
2
Management Analysts
June 1961
10
5
0
4
1
Training Officers
July 1961
13
3
0
2
8
Records Officers
August 1961
5
1
0
0
4
Clandestine Service
September 1961
153
58
12
14
69
Total
191
70
15
20
86
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It should perhaps be noted that within the time frame of
approximately 35 months, in addition to their regular duties,
both the developmental work and the handling of the actual cases
were undertaken by the staff of the Special Assistant which
included
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C. Separation Compensation, 1961
As a companion piece to and also following months
of intensive study, there was published on the same date (10 Feb-
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ruary 1961)
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Essentially, separation com-
pensation was to be authorized to those individuals separated
as surplus personnel
...when it is established that for the predominant
part of the five-year period preceding the separation
their service in the Agency was of such a nature as to
(1) require the acquisition and application of skills
for which requirements in other Government or commercial
fields of employment are either rare or nonexistent, or
(2) effectively prevent them from studying, practicing,
or otherwise developing or retaining proficiency in an
established occupation or profession, or (3) prevent
the individual, for reasons of operational cover or
security, from describing or confirming to a prospective
employer the scope and level of his duties and responsi-
bilities.
In view of the fact that the payment of separation com-
pensation obviously involved the expenditure of public funds,
prior clearance was obtained from both the Bureau of the Budget
and the Committee on Appropriations of the House of Representa-
tives. Certain restrictions were imposed on the Agency in the
administration of this program, specifically limitations estab-
lishing the maximum number of individuals who might receive
separation compensation within a stipulated period. In the
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light of the abrupt end to the use of "701," these restrictions
proved to be no handicap.
25X1A
Director of Personnel to terminate a separation compensation
authorization upon a finding that a fraudulent claim had been
submitted or that a security or cover agreement with the Agency
had been breached. Fortunately, it was never necessary for the
Agency to invoke this provision.
Responsibility for administering the Agency's first sep-
aration compensation program was assigned to the Special Assistant
to the Director of Personnel. This required in the first in-
stance the development of rather detailed procedures for author-
izing the grants, for making initial payments, and for processing
subsequent claims to the limit of the individual's authorization.
Prior to the large-scale Clandestine Service surplus exercise,
the career services that had conducted surplus programs varied
somewhat in their interpretation of the criteria for granting
separation compensation. For example, the Administration Career
Service granted separation compensation to both of its employees
who were eligible for the compensation. The Management Career
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Service determined that none of its employees met the criteria
for granting separation compensation. The same held true for
the Records Career Service. The Office of Training, with some
of its training officers under cover status for a number of
years, granted separation compensation to six employees and
denied. it to four. Those individuals separated under the Clan-
destine Service surplus exercise were all authorized separation
compensation, and this obviously presented a much more formidable
administrative problem.
Between 16 September 1961 and 20 December 1965 the Office
of the. Special Assistant authorized the disbursement of
$819,426.17 to 75 individuals. The following table gives a
breakdown of the money disbursed.
Separation Compensation
Fiscal Year
US
1962
21,032.83
1963
386,605.45
1964
327,119.67
1965
72,226.22
1966
12,442.00
Total 819,426.17
In October 1965, under the provisions of Public Law 89-301,
a new, more liberal Government-wide separation compensation program
was devised not restricted to individuals separating as "surplus"
personnel.
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25X1A
D. The Panels
1. Applicant Review Panel, 1953
The Applicant Review Panel was established 15 July 1953
by the Deputy Director (Administration) and was originally
called the Medical-Security-Personnel Panel. The purpose of
that time the name of the panel was changed to Applicant Review
Panel. Generally, the purpose of the panel has remained the
same since its inception in 1953.
A member of the Special Activities Staff has served as
chairman of the panel since 1958. The Special Activities Staff
also provides the necessary clerical support. The panel con-
sists of representatives designated by the Director of Personnel,
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Director of Security, and Director of Medical Services. These
offices are responsible for presenting pertinent information.
The Chief, Assessment and Evaluation Staff, Office of Medical
Services, is responsible for bringing to the attention of the
panel information developed by that staff concerning the intel-
lectual capacities, aptitudes, or personality characteristics
of an individual under consideration.
In connection with its consideration of a case, the panel
reconmiends continued processing, further review by either the
Office of Personnel, the Office of Security or the Office of
Medical Services, or rejection on suitability grounds. In the
latter contingency, the chairman of the panel provides a written
report through the Chief, Special Activities Staff to the Director
of Personnel, whose decision is final. In certain non-clerical
cases, the Director of Personnel, if he deems it appropriate,
may consult with the head of the career service concerned before
a final decision on canceling the processing is made.
Among the principal reasons for applicants being rejected
by the panel are: excessive use of alcohol, dishonesty, imma-
turity or irresponsibility, instability, poor work records,
financial irresponsibility, poor academic records, use of nar-
cotics or marijuana, falsification of employment records, marital
problems, and problems involving family members.
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The following chart reflects those cases involving a
significant question of suitability considered by this panel:
Fiscal Years, 1959-67
Fiscal
Year
Total Cases
Considered
Approved
Rejected
1959
231
112
119
1960
250
92
141
1961
67
1962
89
156
1963
354
162
1964
312
93
198
1965
354
111
1966
407
140
218
1967
61o
246
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2. Overseas Candidate Review Panel, 1957
In a memorandum dated 8 October 1957 addressed to the
Directors of Security and Training and Chief, Medical Staff,
the Director of Personnel proposed that the Clandestine Service
provide to the offices represented on the Medical-Security-Personnel
Panel the "names of personnel above the clerical level who have
been earmarked for overseas assignments." Those offices in turn
would be asked to make
...the necessary review of their records and bring to
the Panel material bearing on the suitability of each
candidate for foreign assignment.
This proposal was later extended to the Support Services as
well as the Clandestine Service. In a memorandum dated 2 Decem-
ber 1957, the Deputy Director (Support), in discussing a case of
an employee who had been improperly assigned overseas, advised
the Inspector General that the Director of Personnel
25X1 A ...talked with and proposed that the
Medical-Security-Personnel Panel undertake a review
of all persons to be assigned to key and responsible
positions overseas, and readily agreed to
this procedure... . The review made by the Panel
will be based on materials available in the Offices
of Personnel and Security and in the Medical Staff
at the time foreign assignment is first contem-
plated... .
Subsequently, whenever the M-S-P Panel considered an overseas
assignment case, the panel operated as an Overseas Evaluation
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Panel. (In December 196+ the membership of the panel was ex-
panded to include a member of the Clandestine Service who
would be designated by the Deputy Director for Plans.")
In December 1957 the Director of Personnel notified the
heads of the career services for Logistics, Communications,
and Finance that the Deputy Director (Support) had agreed that
those offices also should submit the names of "candidates for
overseas positions above the clerical level."*
In late 1957 the Personnel representative on the panel
(who was also chairman) was assigned to the office of the Special
Assistant to the Director of Personnel and since that time the
Special Activities Staff has furnished the professional and
clerical support to the panel.
25X1A Effective 13 December 1961, the panel was reestablished
on the basis of and designated as the
Overseas Candidate Review Panel. At that time the scope of the
panel was further broadened to include all Agency employees
proposed for overseas assignment, regardless of office or career
service having jurisdiction. This made the panel's jurisdiction
Agency-wide.
By 1959 the Director of Personnel broadened the scope of
the panel to include clerical as well as professional
candidates for overseas assignment.
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.From its beginning the panel had periodically conducted
reviews of those cases of employees returned from overseas
short of completion of tour for reasons of unsuitability. In
this manner, the panel was able to review the adequacy of pro-
cedures for selecting overseas assignees, as well as its own
effectiveness. In September 1964, following an IG survey of
the Office of Personnel, the Acting Deputy Director for Support
notified all Deputy Directors and the Inspector General that
because of an increasing concern about the number of individuals
being returned from overseas prior to completing their tours of
duty, he had assigned to the Overseas Candidate Review Panel
...the responsibility for reviewing cases of staff
employees and staff agents who failed to complete
their tours due to adverse factors such as mis-
conduct, inability to adjust, etc., with a view
to ascertaining whether there were shortcomings in
Agency procedures or deficiencies in the selection
of individuals for overseas assignment, and what
corrective action, if any, might be taken to avoid
similar cases in the future.
In the latter part of 1964 the Director of Personnel
appointed a task force headed by the chairman of the panel to
review the overseas clearance procedures used by the various
offices represented on the panel. The study made by the task
force revealed a need for the simplification and acceleration
of the total evaluation process. One result of the study was
the development of Form 259a, Request for PCS Overseas Evaluation.
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By using a standardized form, an office nominating an overseas
candidate can obtain the various clearances and approvals in
one centrally controlled operation, thus reducing the amount of
time and paperwork formerly required.
At the present time (1971) the procedure is as follows:
The career service nominating an employee for an overseas assign-
ment refers the employee's name and other pertinent information
to the Special Activities Staff by means of Form 259a. Upon
receipt of the form, SAS distributes various copies to the offices
represented on the panel. Those offices in turn screen their
files and conduct other examinations or investigations, as appro-
priate. If no question arises concerning the suitability of the
employee or his family for the assignment, the panel's approval
is transmitted by use of Form 259a through the Special Activities
Staff to the requesting career service. If a question of suit-
ability arises involving either the individual or his family
which cannot be resolved by one of the Support offices unilat-
erally, the case is then placed on the agenda for discussion.
The panel's recommendations are reported to the Director of
Personnel, who is responsible for reviewing the findings and'
for informing the head of the appropriate career service if he
determines that a question exists about the suitability of an
employee or his dependents for the proposed overseas assignment.
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Questions which cannot be resolved between the Director of
Personnel and the head of the career service are referred to
the Executive Director-Comptroller for final decision.
The following statistical summary reflects cases con-
sidered by the Overseas Candidate Review Panel:
Fiscal Years, 1959-67
25X9^ Year
so
Total
Candidates New Cases
Screened Considered Approved Rejected
Most overseas candidates were rejected by the panel for
one or more of the following reasons: immaturity or emotional
problems, poor attitude, personality problems, excessive use of
alcohol, family problems, and poor performance. Of those can-
didates considered and approved by the panel for overseas service
less than 110 were returned short of tour for reasons of unsuit-
ability.
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E. The CIA Personnel Evaluation Board, 1954
In 1953 a need arose to clarify Agency policy concerning
employees who had developed mental disabilities. Certain ques-
tions were being asked concerning the length of time a person
should be carried on the rolls in a situation where he had been
admitted to a mental institution, the procedure to be utilized
to terminate the employment of a person who was mentally in-
competent, and the like. Finally, in January 1954, the then
Deputy Director for Administration, the Assistant Director of
Personnel, the General Counsel, Chief of the Medical Staff, and
the Director of Security held a meeting to consider the problem
of mental cases.* It was decided at that meeting that a board
should be established to
consider psychiatric cases which are the final respon-
sibility of the ADP fAAssistant Director of Personneg
for disposition.
The board was to consist of all of the participants of the Janu-
ary meeting, plus a representative from the employee's office.
The Deputy Director for Administration further suggested that
a notice be prepared outlining the functions and procedures of
the newly created board, known initially as the Psychiatric
Screening Board.
Memo for Record, 25 January 1954, subject: Personnel Psychi-
atric Board.
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In February 195+ the Inspector General notified the Acting
Deputy Director for Administration and the Assistant Director
of Personnel that several cases involving mental health of
Agency employees had been called to his attention. He requested
that a mechanism be established to bring to the attention of
the Director of Central Intelligence the "prevalence and nature
of those cases requiring initial suspension from duty and/or
hospitalization."
The Acting Deputy Director for Administration decided
that the report to the DCI on psychiatric cases could best be
prepared through the mechanism of the Psychiatric Screening
Board. The Assistant Director of Personnel should prepare the
overall report which would be sent through the Inspector General,
to include the comments of the Medical and Security offices.
In March 195+ the Chief, Counseling Branch, Employee Serv-
ices Division, Office of Personnel, was appointed Executive
Secretary to the Psychiatric Screening Board. He immediately
undertook the task of preparing a draft of a regulation under
which the board would operate. At a meeting on 22 March 1954,
however, the board decided that the
Psychiatric Board, should be considered as the charter by which
the board would operate, and that a formal regulation would not
be issued. The board met once again in March and agreed that
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the name should be changed from "Psychiatric Board" to the "Dis-
position Board" since "many of the cases which would come up
for discussion would be other than mental cases."
In 1958, responsibility for monitoring the activities of
the Disposition Board was assigned to the Special Assistant to
the Director of Personnel. Between March 1954 and March 1964
the Disposition Board met several times each year, usually at
the request of the Chief, Medical Staff. The following table
is a sunmiary of the activities of the board from March 1954 to
June ].964.
Fiscal Years, 1955-64
Period Covered
Meetings Held
Cases Considered
March 1954-June 1954
4
9
1955
8
9
1956
8
18
1957
9
13
1958
5
15
1959
7
10
1960
2
2
1961
5
9
1962
5
9
1963
9
1964
8
22
Most of the cases considered by the board had psychiatric over-
tones. The board's principal function became one of coordinating
the actions of the various offices represented on the board. The
Psychiatric Staff, Office of Medical Services, was able to alert
Personnel, Security, the General Counsel, and appropriate
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operating officials to the fact that an employee had a mental
problem. Those offices in turn were able to coordinate any
proposed efforts in each case, meeting as a board when appro-
priate.
In March 1964 the Acting Director of Central Intelligence
advised the Director of Personnel that
It recurringly comes to my attention that from time
to time the personal conduct or job performance of
an employee is so deficient that it is at least
highly questionable whether he is suitable for con-
tinued employment in CIA ... . Far too frequently
there is evidence that supervisors at all levels have
not taken reasonable action ... . As part of our
over-all Agency program to ensure high standards of
suitability and to improve supervisory performance,
you are directed to conduct a thorough investigation
of any case which comes to your attention which raises
questions of suitability for continued employment and
to make appropriate recommendations to me.
In response to the ADCI4s directive, the Director of Personnel
recommended that the functions of the Disposition Board be re-
defined and extended to "include serious suitability cases of
all types in addition to the psychiatric type case, and to re-
name and formalize such a Board." In a memorandum dated 30 May
1964 the Deputy Director of Central Intelligence advised all
Deputy Directors and Office Heads that the Agency Disposition
Board would be replaced by a board having greater scope in the
matter of advising on questions of suitability for Agency
employment. The new board would be called the "CIA Personnel
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Evaluation Board" and would be composed of the following:
Chairman: Director of Personnel
Permanent Members: Director of Security
Chief, Medical Staff
Temporary Members: The head of the career service having
jurisdiction over the employee, or
the former's designee
The chief of the employee's office or
division, as appropriate
Advisors: General Counsel
Director of Finance
The board would meet on the call of the chairman, and the Chief,
Special Activities Staff, Office of Personnel, would be the
Executive Secretary of the Board.
Since the Personnel Evaluation Board's inception in 1964,
Agency supervisors and officials bring to the attention of the
Director of Personnel for review and, as appropriate, for con-
sideration by the board any employee cases which come to their
attention in which there is any question of suitability for
continued Agency employment. After a careful consideration of
the case, the boaxd advises the Director of Personnel as to a
suggested course of action. Following the meeting, the Office
of Personnel, through the Special Activities Staff, attempts to
dispose of the case in a manner consistent with the course of
action recommended by the board and approved by the Director of
Personnel. Such cases are normally resolved through resignation,
termination, or disability retirement.
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A statistical summary of the activities of the Personnel
Evaluation Board since its redesignation in 196+ follows:
Fiscal Year
Meetings Held
Cases Considered
1965
13
25
1966
7
14
1967
6
7
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F. The Career Conversion Program
In 1954 considerable attention was directed within the
25X1A Agency to the proposed establishment of a "Career Staff." The
Employees who had three years of Agency service and were at
least 25 years old were given application forms to sign. The
forms contained a statement to the effect that
I am also aware that as a member of the Career
Staff it will be my obligation to serve anywhere
and at any time and for any kind of duty as
determined by the needs of the Agency.
After an employee signed the application, a review of his work,
health, and employment records as documented in the Official
Personnel Folder was initiated and the findings reported to an
Examining Panel. The Panel would recommend to the CIA Selection
Board that the employee be (1) accepted for membership into the
Career Staff, (2) be rejected for membership, or (3) be deferred
either because the employee had declined to submit an applicatiop
or the employee had a deficiency of some sort.
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25X9
Applications for membership into the Career Staff were
sent to eligible employees from July 195+ until sometime in
1960. By then it was becoming evident that most employees were
willing to sign the application and the great majority of those
who signed were admitted into Career Staff membership. Career
Staff records indicate that between 21 January 1955 and 2 June
25X9
1960, cases were considered. Of those, were approved,
250 were deferred, 77 were rejected, and 29 declined to submit
an application.
Among those reasons for rejecting employees for membership
into the Career Staff were unsatisfactory personal conduct while
on-the-job, unwillingness to fulfill the obligations of Career
Staff membership, lack of intent to make a career with CIA, in-
adequate job performance, history of indebtedness, irresponsi-
bility in handling Government funds, abuse of sick and annual
leave privileges, unsatisfactory performance of assigned duties,
and an excessive number of security violations. Reasons for
deferring action on an application for Career Staff membership
were insufficient evidence of satisfactory performance, career
interest appeared to be in fields other than those to which
assigned, history of indebtedness, unwillingness to fulfill
the obligations of the Career Staff at that time, leave problems,
and past misconduct.
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Whatever the "Career Staff" was considered to be, it was
not an "elite corps." Processing applications for membership
in reality became a tool of management. Instead of providing
certain benefits to those employees who became Career Staff
members, it mainly identified those relatively new Agency employees
who probably should not have been selected for employment in the
first place. Despite its usefulness from the management point
of view, the Career Staff concept slowly died, and during 1960
no new applications were distributed or processed.
During the latter part of 1961, the present Career Con-
version Program was initiated, thereby bringing to an end the
"Career Staff" concept. Effective 15 September 1961, all staff
personnel were entered on duty in a "Career-Provisional" status.
At the end of the employee's first three years of Agency service
(but not before his 25th birthday) and following an overall
suitability review, the employee's name is referred to the head
of his career service along with any pertinent information, and
the career service head in turn recommends to the Director of
Personnel (1) the employee's conversion to Career Employee status,
(2) deferment of such recommendation for a period not to exceed
one year, or (3) termination of the individual's Career-Provisional
appointment.
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From September 1961 until the early part of 1962, the
same personnel who had handled processing of applications for
the old Career Staff administered the new Career Conversion
Program. In 1962 the program was transferred to the Special
Assistant to the Director of Personnel. In reorienting the new
program, during 1962 the SAD/Pers made arrangements with data
processing officials to furnish, on a semiannual basis, a listing
by Career Service of all staff employees who had reached three
years of continuous Agency service during the preceding six
months and who were at least 25 years of age. These listings
were later related to the Agency-wide computer program.
After receiving the machine lists, the procedure followed
by the Special Activities Staff was (and continues to be) as
follows: The staff reviewed the Official Personnel Folder of
each employee and any available "Eyes Only" information. In
selected cases, pertinent information was summarized for the
head of the appropriate career service and that information,
along with the names of all eligible employees, was forwarded
to the appropriate career service head. The heads of the career
services returned their recommendations to the Special Activities
Staff, and the Staff then monitored the processing of the per-
sonnel actions and conducted follow-ups and gave necessary
assistance in cases which had been deferred.
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25X9
Fiscal year statistics from 1 July 1962 until the present
are shown in the statistical summary below:
Fiscal Years, 1963-67
Total Deferred by
Heads of Career Services
Fiscal Total for Period Not to
Year Converted Exceed 1 Year
1963
1964
1965
1966
1967
A majority of the deferred cases were later converted to Career
Employee status; the remainder resigned from the Agency.
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G. Custodian of Sensitive Personnel Information
In 1962 the then DDCI, General Carter, during his review
of appeals from employees who had been proposed for separation
under the provisions of the Agency surplus regulation, noted
that certain pertinent information, or reference to it, con-
cerning an employee's suitability, was often not to be found in
the employee's Official Personnel Folder. Such information
could, however, be found after considerable searching in office
files throughout the Agency. General Carter was especially
concerned over the lack of a system which insured that all per-
tinent information on an Agency employee was available when a
personnel action was being considered. Subsequently, the Deputy
Director for Support asked the Director of Personnel to prepare
a proposed procedure for integrating employee information.
During October 1962 the Special Assistant to the Director
of Personnel (later Chief, Special Activities Staff) prepared
a proposed directive from the DDS to the heads of the support
offices, concerning the initiation of a system for the "inte-
gration of personnel information" (which was thereafter referred
to as the IPI program). In addition to the directive, there
were standard operating procedures to be used and a suggested
form for the use of the participating offices in reporting on
a continuing basis a summary of any confidential information
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which had been or was being included in their office files. On
13 December 1962 the DDS notified the Comptroller, Chief of the
Medical Staff, Director of Personnel, and Director of Security
that the integration of information influencing personnel actions
would be brought to fruition in three phases. Phase I was the
informal and ad hoc arrangement whereby personnel, medical, and
security information was to be pooled on a more formal basis,
and then information from the Comptroller would be added.
Phase II would be an "attack on the 'soft files' existing in
every component of the Agency ...'4 and Phase III would "central-
ize or report the existence of other information about employees
which should be considered in connection with personnel actions
affecting them."
Phase I was completed by July 1963, and in August 1963 25X9
General Carter in
25X9
General Carter further directed that each Deputy Director (for
his immediate office) and Operating Official would advise the
Director of Personnel when action in compliance with the notice
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had been completed. Between August and December 1963, all
components of the Agency reported that they had reviewed their
soft files and that pertinent information had either been re-
ferred to the Office of Personnel or its existence had been so
indicated.
Access to the information in the IPI file maintained by
the Special Activities Staff is restricted to Deputy Directors
and Heads of Career Services, or their representatives. It is
also made available to the Support offices and their instru-
mentalities, such as the Overseas Candidate Review Panel.
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I. Consultant Service to Offices and Career Services on
Personnel Problem Cases
From his designation on 19 September 1957, the Special
Assistant to the Director of Personnel has had as his number
one responsibility serving as the senior representative of the
Director of Personnel in the handling of personnel problem
cases. In addition to providing staff support to the Director
of Personnel in these matters, his office is responsible for
providing advice and guidance to Agency employees with--or
Agency officials involved with--serious personnel problems.
In short, professional members of the staff are in effect con-
sultants, equipped by training and experience to assist Agency
management with their most difficult problem cases. The ex-
pertise called for not only is in the broad area of personnel
administration but also includes an extremely broad range of
knowledge and experience in such other areas as medical, security,
legal, and the behavioral sciences generally. Working with the
staff resources provided by the Agency in these fields, members
of the Special Activities Staff have been in a position to pro-
vide Agency personnel managers with advice and assistance of a
high professional order.
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Appendix A
Chronology: 1957-70
1957 Director of Personnel establishes staff headed by
Special Assistant to the Director of Personnel
to handle problem cases.
1957 SA/D/Pers provides executive secretary for the Agency
Disposition Board.
1958 Selection-Out Program began.
1958 Applicant Review Panel and Overseas Candidate Review
Panel made responsibility of SA/D/Pers.
1961 Surplus Program started.
1961 Separation Compensation authorized for employees
affected by Surplus Program.
1961
1962 Career Conversion Program transferred to SA/D/Pers.
1962 Program established for the integration of "Eyes Only"
personnel information to be responsibility of
SA/D/Pers.
1963 SA/D/Pers changed to Special Activities Staff.
1964 Responsibilities of Disposition Board redefined and
extended; name changed to Personnel Evaluation
Board.
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 Appendix H
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ull~
APPLICATION FOR MEMBERSHIP
in the CAREER STAFF of the
CENTRAL INTELLIGENCE AGENCY
To the Director of Central Intelligence
Sir:
I submit herewith my application for membership in the Career Staff of the
Central Intelligence Agency as defined. below:
"The Career Staff of the Central Intelligence Agency is a group of
carefully selected and trained individuals who accept an obligation to
devote themselves to the needs of the. Agency, and who intend to make
a career with the Agency."
In accordance with this definition, I desire to devote myself to the luith-
ful performance of duty in the Central Intelligence Agency, and I accept the
obligations and conditions of that service which are determined to be essen-
tial to the furtherance of its mission.
I am aware of the many restrictions necessarily placed upon me by virtue
of the security requirements inherent in my employment by the Central Intelli-
gence Agency. I am also aware that as a member of the Career Staff, it will
be my obligation to serve anywhere and at any time and for any kind of duty
as determined by the needs of the Agency, and I have been assured that in
order to carry out this policy, full consideration will be given to my particular
capabilities, interests, and personal circumstances. By virtue of this applica-
tion for membership and upon my acceptance in the Career Staff, I am assured
that, with continuing satisfactory work performance and conduct on my part,
just and equitable attention will be accorded my personal progress during my
tenure in the Career Staff. I am also assured that, on my satisfactory com-
pletion of any assignments, I will be offered reassignments which are compati-
ble insofar as possible with my abilities and career interests, and that' I shall
be entitled to the benefits now available or to be made available in-the future
to members of the Career Staff of the Central Intelligence Agency.
MEMBERSHIP IN THE CAREER STAFF OF
THE CENTRAL INTELLIGENCE AGENCY
APPROVED, TO TAKE EFFECT G NOV 1957
FOR THE DIRECTOR OF CENTRAL INTELLIGENCE;
EXECUTIVE DIRECTOR
THF,,CtA SELECTION BOARD-1
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