SECOND INTERIM REPORT-- NATIONAL ACADEMY OF PUBLIC ADMINISTRATION (NAPA) STUDY OF CIVILIAN PERSONNEL SYSTEM

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90M00005R000400030005-5
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 10
• Document Creation Date: December 27, 2016
• Document Release Date: November 5, 2012
• Sequence Number: 5
• Publication Date: August 30, 1988
• Content Type: MEMO

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ICS 4273-88
30 August 1988
MEMORANDUM FOR: Director of Central Intelligence
VIA: Deputy Director of Central Intelligence
FROM: Lieutenant General Edward J. Heinz, USAF
Director, Intelligence Community Staff
SUBJECT: Second Interim Report--National Academy of Public
Administration (NAPA) Study of Civilian Personnel Systems
as required by the Fiscal Year 1988 Intelligence Authorization Act.
1. Attached for your signature are letters to Senator Boren and
Representative Stokes forwarding NAPA's second Interim Report on the study it
is conducting on civilian personnel systems within the Intelligence Community,
3. The NAPA Panel's central finding is that those intelligence agencies
with sufficient flexibility in their personne1 authorities, particularly in
the areas of recruitment and compensation, have been able to compete with the
private sector and meet work force needs. Thus, the Panel recommends that the
intelligence agencies retain these flexibilities and be provided more in
specific areas. Other key conclusions and recommendations include:
o The FBI's authorizing legislation should be changed so that its
authorities conform to those of other Intelligence Community
agencies. In particular, the FBI should be granted the same
recruiting flexibilities recently provided to the intelligence
components of the military services.
o Intelligence agencies need to be able to hire, when needed, those
military retirees with unique skills. On onp hand, their talents are
lost to the Intelligence Community because of their forced
retirement. On the other hand, their acceptance of civilian
em~lnyment with an intelligence agency is not attractive because of
dual-compensation limitations. NAPA will be examining this issue
more fully in its final Report. /
discussing recruitment, retention, and training of personnel.
resource management systems of the various intelligence agencies and
2. The second Interim Report, which is attached, is far more substantive
than the first Interim Report submitted last May. It centers on work force
issues, examining the impact of intelligence requirements on the human
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Declassified in Part - Sanitized Copy Approved for Release 2012/11/06 :CIA-RDP90M00005R000400030005-5
SUBJECT: Second Interim Report--National Academy of Public Administration
(NAPA) Study of Civilian Personnel Systems
o While training offered by Intelligence Community agencies is
effective, the levels of training are uneven and, particularly in the
case of civilians in the military department intelligence components,
inadequate. Thus, the NAPA Panel recommends that a Committee on
Training and Career Development be established to serve as a formal
mechanism for Intelligence Community agencies to coordinate training
capabilities with training needs.
Among the other conclusions, of interest is the fact that the current
attrition rates for the Intelligence Community are fairly healthy, with the
exception of the military service organizations and the FBI (the attrition
rate for the FBI was nine percent in 1987). NAPA also makes a case for
improved coordination of entry-level recruitment efforts within the
Intelligence Community, particularly in adopting innovative ways to deal with
clearance processing delays (citing NSA's practice of issuing Limited Interim
Clearance as an example).
4. The Steering Group, made up of senior representatives from the
participating intelligence agencies, is generally pleased with the Interim
Report and has contributed much time and effort to assist NAPA in its study.
The only shortcoming we see is that the "uniqueness" argument--that the
Intelligence Community requires exceptional personnel practices because of the
unique aspects of our mission--should have been made stronger. We have sought
to make this point clearer via your letter to the HP SCI and SSCI Chairmen.
Overall, NAPA's second effort has improved considerably over its first Report.
We will continue to_work with the NAPA Study Staff to assure the best possible
5. The second Interim Report is due to the Congress on 1 Septem5er 1988.
Following your review anri signature of the forwarding letters, I shall attach
the NAPA Reports and arrange delivery to the Senate Select Committee on
Intelligence and the House Permanent Select Committee nn Intelligence.
LieutPn~^~ G?neral,
Attachments:
A. Letters for Signature
B. Interim Report
SECRET
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 Declassified in Part - Sanitized Copy Approved for Release 2012/11/06 :CIA-RDP90M00005R000400030005-5
SUBJECT:' Second Interim Report--National Academy of Public
Administration (NAPA) Study of Civilian Personnel Systems
ICS 4273-88 w/atts
Original - DCI
1 - DDCI (ER File)
1 - D/ICS
1 - D/OCA
1 - C/LLS
1 - D/PPO
1 - PPO Subject (Kim)
1 - PPO Chrono
1 - ICS Registry
DCI/ICS/PPO
ICS 4273-88/1
Oriq - Chmn, HPSCI
1-DCI
1 - DDCI (ERFile)
1 - D/ICS
1 - D/OCA
1 - C/LLS
1 - D/PPO
1 - PPO Subject (Kim)
1 - PPO Chrono
1 - ICS Registry
(22 August 1988)
ICS 4273-88/2
Orig - Chmn, SSCI
1 - D/OCA
1 - LL/ICS
1 - PPO Subject
1 - PPO Chrono
1 - ICS Registry
STAT
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~~ n
National Academy of Public Administration
Chartered by Congress
August 29, 1988
The Honorable Louis Stokes
Chairman
House Permanent Select Committee on Intelligence
H-405 Capitol Building
Washington, DC 20515
Through: Judge William H. Webster
Director of Central Intelligence
Dear Chairman Stokes:
On behalf of the National Academy of Public
Administration's Panel for the Study of the Intelligence
Personnel Systems, I am pleased to transmit the September 1st
interim report, as requested by the Congress in the Conference
Report for the Fiscal Year 19ES8 Intelligence Authorization Act.
The report is also being sent to the Honora~le David L.
Boren, Chairman, Senate Select Committee on Intelligence.
Sincerely,
Philip F:. Odeen
Panel Chairman
120 G Street, N.W., Suice 5.30 Washinotnn n r ~nr?~~. ,r~,, ~,~ , ~.,,,
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? SECRET
The Director of Central IntelliQcna
Washington, D.C. 20505
2 septe~er iyss
The Honorable Louis Stokes, Chairman
Permanent Select Committee on Intelligence
U.S. House of Representatives
Washington, D.C. 20515
Attached for your information is the 1 Septemher 1988 Interim Report from
the National Academy of Public Administration (NAPA), the second in a series
studying the Intelligence Community's civilian personnel management and
compensation systems. The Final Report will be transmitted to you on
20 January 1989 in accordance with the Conference Report on the Intelligence
Authorization Act for FY 1988.
The second Interim Report centers on workforce issues, examining the
impact of changing intelligence requirements nn the personnel systems of the
various intelligence agencies and discussing staff recruitment, retention, and
training. I was particularly interested in the Report's presentation on why
the Intelligence Community is unique from other government agencies, and
NAPA's assessment of the special requirements to which employees of the
intelligence organizations are subject. The NAPA Panel's preliminary findings
in this area are encouraging, and we hope that further study will lead to firm
conclusions. NAPA has also presented a thoughtful examination of the degree
to which judicious use of our special authorities has allowed us to compete
for talented personnel in the past, and the deoree to r,~hich we will be
required to use them in the future. Overall, I am encouraged by the work the
NAPA Staff and Panel have conducted thus far and look forward to the
conclusions and recommendations they will make in the Final Report.
A copy of this Report is also being forwarded to the Chairman, Senate
Select Committee on Intelligence.
SincQ~ely yours,
',~'i 11 i am H . Webster
Enclosure:
NAPA Interim Reo~rt
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~Nnrn
National Academy of Public Administration
Chartered by Congress
August 29, 1988
The Honorable David L. Boren
Cnairman
Senate Select Committee on Intelligence
SH-211 Hart Senate Office Building
Washington, DC 20510
Through: Judge William H. Webster
Director of Central Intelligence
On behalf of the National Academy of Public
Administration's Panel for the Study of the Intelligence
Personnel Systems, I am pleased to transmit the September 1st
interim report, as requested by the Congress in the Conference
Report for the Fiscal Year 1988 Intelligence Authorization Act.
The report is also being sent to the Honorable i.ouis
Stokes, Chairman, house Permanent Select Committee on
Intelligence.
Sincerely,
~? ~~
Philip A. Odeen
Panel Chairman
1;20 G Street, N.VV., Suite 540 V`'ashin~ton, D.C. 20005 (202- 347-319
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 CF%RFT
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The Director of Central Intelligence
Wuhm~ton, D.C 20505
2 septenber 19fiS
The Honorable David L. Boren, Chairman
Select Committee on Intelligence
United States Senate
Washington, D.C. 20510
Dear Mr. Chairman:
Attached for your information is the 1 September 1988 Interim Report from
the National Academy of Public Administration (NAPA), the second in a series
studying the Intelligence Community's civilian personnel management and
compensation systems. The Final Report will be transmitted to you on
20 January 1989 in accordance with the Conference Report on the Intelligence
Authorization Act for FY 1988.
The second Interim Report centers on workforce issues, examining the
impact of changing intelligence requirements on the personnel systems of the
various intelligence agencies and discussing staff recruitment, retention, and
training. I was particularly interested in the Report's presentation on why
the Intelligence Community is unique from other government agencies, and
NAPA's assessment of the special requirements to which employees of the
intelligence organizations are subject. The NAPA Panel's preliminary findings
in this area are encouraging, and we hope that further study will lead to firm
conclusions. NAPA has also presented a thoughtful examination of the degree
to which judicious use of our special authorities has allowed us to compete
for talented personnel in the past, and the degree to which we will be
required to use them in the future. Overall, I am encouraged by the work the
NAPA Staff and Panel have conducted thus far and look forward to the
conclusions and recommendations they will make in the Final Report.
A copy of this Report is also being forwarded to the Chairman, Housp
Permanent Select Committee on Intelligence.
Sincerely yours,
William N, h'ebster
Enclosure:
NAPE Interim Report
SECRET
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~.~N n
National Academy of Public Administration
Chartered by Congress
STUDY OF THE INTELLIGENCE
COMMUNITY PERSONNEL SYSTEMS
SECOND INTERIM REPORT
BY
A PANEL OF THE
NATIONAL ACADEMY OF PUBLIC ADMINISTRATION
NAPA Panel
Philip A. Odeen - Chair
Hon. Julius W. Becton
Dr. James Colvard
Admiral Bobby R. Inman
Hon. Carol Laise
Fred Meuter, Jr.
William G. Miller
SEPTEMBER 1, 1988
SECRET
1120 G Street, N.V1'., Suite S-i0 W'ashineton. D.C ~nnns ~~m~ ~,,-, ~~nn
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-?--..... va ~.v a~aLDI1J
Page No.
Chapter One - Introduction ~ 1
I. Changing Functions Reflect Breadth of Missions 2
II. Changing U.S. Workforce Will Affect the IC
III. Unique Aspects of Intelligence Agencies
IV.
Flexible HRM can Accommodate Needs
5
Chapter
Two - The Right Workforce Mix
8
I.
Recruiting and Retaining Staff
8
A. Impact of Changing Authorization Levels
g
B. Meeting Staffing Needs
9
B.1. Recruiting critical skill positions
10
C. Military Intelligence Components:
Different Situation
D
12
.
E
Retaining 2~alented Staff
14
.
Kecruitment Coordination Lacking
15
II.
Impact of Personnel Security Requirements
on Recruiting
15
III. Imp
act of the Changing Workforce on IC Staffing
17
A.
B
Proportion of U.S. Graduates with Critical
5Kills
18
.
Recruiting from a More Diverse Workforce
20
Chapter T
hree - Investing in the Intelligence
Community Workforce
22
I.
Training for Mission Accomplishment
22
A.
Level of Training Varies by Agency
22
A.1 Central Intelligence Agency
A
23
.l National Security Agency
24
A.3 Defense Intelligence Agency
A
4
25
.
Federal Bureau of Investigation
A
5
25
B
.
Military Department Intelligence Components
I
25
.
C
ntelligence Community Cooperation on Training
A
26
.
D
gency Assessments of Training Programs
A
2~
.
gencies Looking Ahead
28
II.
Career Development of Intelligence Community Staff
29
A.
B
Amount of Career Development Varies
Among Agencies
30
.
C
Relation of Career Development and t~gency
Planning
Hel
i
S
33
.
D
p
ng
taff Move Outside the IC Agencies
33
.
How the Agencies are Looking Ahead
34
S E C R E T
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Page No.
~apter Four - Current Proposals and Future Work 37
Current Proposals: Central Intelligence Agency 37
A. Cnanges in the Leave Program 37
B. Cnanges in the CIA Awards Program 38
C. Flexible Benefits Proposals 39
Current Proposals: National Security Agency 39
:I. Topics for Additional NAPti Work 40
A. Compensation: Pay and Benefits 40
ts. Creating a More Diverse Workforce 41
C. Organizational Alternatives for IC Coordination 41
~. Reaucing Human Resource Costs 42
'. Study 'rimeframes
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