CONGRESSIONAL LETTERS ON IMPLEMENTATION OF NATIONAL ACADEMY OF PUBLIC ADMINISTRATION (NAPA) REPORT ON CIVILIAN PERSONNEL SYSTEMS IN THE INTELLIGENCE COMMUNITY

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP91B01306R001500010001-4
• Release Decision: RIPPUB
• Original Classification: C
• Document Page Count: 167
• Document Creation Date: December 23, 2016
• Document Release Date: November 20, 2013
• Sequence Number: 1
• Publication Date: July 24, 1989
• Content Type: MEMO

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Central 19telligence Agency
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ROUTING
AP
D RECORD SHEET
SUBJECT: (Optional)
Congressional Letters on Implementatio
(NAPA) Report on Civilian Personnel S
FROM:
f National Academy of Public Adminstration
stems in the Intelli:ence Communit
EXTENSION NO.
Acting Director, Intelligence Community S aff
ICS 4289-89
DATE
TO: (Officer designation, room number, and
building)
ER iUL 19S9
DATE
at-
3 i9
OFFICER'S COMMENTS (Number each comment to show from whom
INITIALS to whom. Draw a lima across column after each comment.)
RECEIVED FORWARDED
DDCI
DCI
10.
11
12.
13.
14.
15.
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FORM 610 um
(-79 EDITIONS
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0 CONFIDENTIAL
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\\CONF DENTIAL
ICS 4289-89
24 July 1989
MEMORANDUM FOR: Director of Central Intelligence
VIA: Deputy Director of Central Intelligence
FROM:
SUBJECT:
Acting Director, Intelligence Community Staff
Congressional Letters on Implementation of
National Academy of Public Administration
(NAPA) Report on Civilian Personnel Systems in
the Intelligence Community
1. Attached for your signature are letters transmitting
the Community's Personnel Action Plan developed as a result of
the NAPA Report. The Action Plan identifies initiatives that
will be pursued by intelligence agencies in short-, medium-,
and long-term time frames and indicates where new legislative
authorities may be required. The Community Personnel
Coordination Committee (CPCC), composed of personnel directors
of key agencies, concurs with the Plan.
2. As the letters indicate, some of the initiatives have
been studied by the Office of Personnel Management for
application throughout the Federal Government and are not
necessarily unique to the needs of the Community alone.
Interagency working groups have begun to develop detailed plans
and proposals for each of the short-term initiatives identified
in the Action Plan. The CPCC will continue to oversee progress
made by these groups.
CONF JJENTIAL
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. CONFIDENTIAL
SUBJECT: Congressional Letters on Implementation of National
Academy of Public Administration (NAPA) Report on
Civilian Personnel Systems in the Intelligence
Community
3. The SSCI has continued to show great interest in the
implementation of the NAPA Report. My Staff, accompanied by a
representative from key intelligence agencies, will meet with
the SSCI Staff on 31 July to discuss the Action Plan and
specific goals for the short-term initiatives. We also
anticipate hearings on the NAPA Report will be called sometime
this fall.
Acting Director
Attachments:
A. Letters for Signature
B. NAPA Recommendations
C. NAPA Action Plan
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CONFIDENTIAL
SUBJECT: Congressional Letters on Implementation of National
Academy of Public Administration (NAPA) Report on
Civilian Personnel Systems in the Intelligence
Community
DISTRIBUTION: (ICS 4289-89 w/attachments)
Copy 1 - Addressee
2 - DCI
3 - Executive Registry
4 - AD/ICS
5 - D/PPO
6 - PPO Subject
7 - PPO Chrono
8 - PPO Chrono
9 - ICS Registry
DCl/ICS/PPO/
(20 July 1989) 25X1
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CONF I DENT I AL
The Director of Central Intelligence
Washington, D.C. 20505
"2 8 JUL 1989
The Honorable David L. Boren
Chairman
Select Committee on Intelligence
United States Senate
Washington, D.C. 20510
Dear Mr. Chairman:
I am writing to forward additional information on the
Intelligence Community's plans to implement the National
Academy of Public Administration's (NAPA) Report on civilian
personnel systems. In a letter to you in April, I promised to
provide such information following a detailed Community review
of the NAPA Report and its recommendations. That review has
now been completed and is excerpted in Enclosure A. Based on
the review, the Community has developed an initial Action Plan
(Enclosure B) that covers the personnel initiatives it will
investigate further. The Community Personnel Coordination
Committee (CPCC)--established as a result of the NAPA Report
and composed of personnel directors of key agencies--concurs
with the Plan.
The Action Plan focuses primarily on NAPA's
recommendations, but a number of related issues have been
added. Initiatives are identified as short-, medium-, or
long-term, and indicate if new legislative authority is
needed. With a few exceptions, the initiatives apply to the
Community as a whole. Some--such as flexible pay for
critically skilled employees and expanded training
opportunities--parallel trends and policies currently being
studied by the Office of Personnel Management for application
throughout the Federal Government.
As I noted in my April letter, the Community is using a set
of interagency working groups to address NAPA's recommendations
and ensure that personnel initiatives are thoroughly vetted.
Those groups are now developing detailed plans and proposals
for each of the short-term initiatives identified in the Action
Plan. I will monitor their progress through the CPCC. If you
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The Honorable David L. Boren
wish, we would be pleased to brief the Committee or Staff, as
you deem appropriate, on the Action Plan or any of the
initiatives it treats. My point of contact for such briefings,
and any additional questions on the Report, is
can be reached on
of the Intelligence Community Staff. He
I appreciate the interest and support the Oversight
Committees have shown in implementing the NAPA Report to ensure
that we continue to recruit and retain the best men and women
for the Intelligence Community. I look forward to working
closely with you to assure that the Community's personnel
management systems are equitable and consistent and provide the
tools necessary to accomplish our unique mission.
This same letter and enclosures are being sent to the Vice
Chairman, Select Committee on Intelligence; the Chairman, House
Permanent Select Committee on Intelligence; and the Ranking
Minority Member, House Permanent Select Committee on
Intelligence.
? Enclosures:
As stated
Sincerely,
Jig Tallinn H. Webster
William H. Webster
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t.
CONFIDENTIAL
SUBJECT: Letter to The Honorable David L. Boren
DISTRIBUTION: (ICS 4285-89)
Copy 1 - Addressee
2 - DCI
3 - Executive Registry
4 - AD/ICS
5 - D/OCA
6 - C/LL/ICS
7 - D/PPO
8 - PPO Subject
9 - PPO Chrono
10 - ICS Registry
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NAPA RECOMMENDATIONS
CHAPTER 3: HIRING AND KEEPING THE BEST PERSONNEL
CHANGING AUTHORIZATION LEVELS
Recommendation 1 If cuts must be made for ?overriding political
considerations, then the Panel recommends that the intelligence committees of
the Congress and the President realign the agencies workloads to be
consistent with the new staffing levels.
Response: The Community Personnel Coordinating Committee (CPCC)
determined that the ability to realign the workloads of each Intelligence
Community agency when budgetary considerations require reduced staffing
levels are difficult at best. Workloads are not determined by budgetary
considerations alone; current requirements, priorities, and nature of
intelligence activity (e.g., labor intensive or not) are also key. The
CPCC suggested that individual agencies could develop long?range mission
strategies that identify missions/functions to be dropped if manpower cuts
were necessary.
VARYING SUCCESS FOR CRITICAL SKILL RECRUITING
Recommendation 2 The Panel recommends that the Department of State create
incentives to make service in the Bureau of Intelligence and Research (INR)
more career enhancing for foreign service officers.
Response: The Department of State/INR is developing a program for new
political officers to give them an appreciation for intelligence matters.
This program includes exposure to INR functions, intelligence training,
and cryptologic indoctrination seminars. By helping foreign service
officers understand the worth of intelligence, it is hoped that their
receptivity to a rotation in INR will be heightened.
Recommendation 3 The Panel recommends that Congress grant the FBI personnel
flexibility comparable to that provided the military department intelligence
components. Since FBI personnel move in and out of counterintelligence work,
and there is not an identifiable group of intelligence staff, the Panel
recommends that such authority be provided for the entire Bureau.
Response: Legislation has been drafted by the FBI and provided to the
Department of Justice for review.
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CONTINUING DIFFICULTY PREDICTED
Recommendation 4 The Panel recommends that Congress consider establishing
(education) grants that would require recipients to work in public service, or
specifically the Intelligence Community, for a given time period after
receiving an advanced degree (similar to grants designed to encourage more
students to become teachers in the 1960s and 1970s).
Response: While the CPCC agrees with the intent of the recommendation to
underwrite the cost of education for individuals whose skills are needed
by the Community, it is concerned that Congressional grants may be
distributed to schools or individuals that may not meet the knowledge and
security requirements of the Intelligence Community. The Working Group
believes Recommendation #14 would better address this need. In addition,
the implications of recent legislation on the ability to implement this
recommendation must be assessed--specifically, Public Law 100-456,
restricting statutory earmarking of research funds for specific colleges
and universities and Senate Bill S1071, amending Title 5 U.S.C. Chapter 53
to authorize the repayment of student loans as an incentive for recruiting
and retaining federal employees.
MILITARY INTELLIGENCE HIRING
Recommendation 5 The Panel recommends that the military departments pay
careful attention to CIPMS implementation and that it be implemented with all
deliberate speed.
Response: This is a high-priority matter for the Department of Defense.
Implementation has been accomplished in Navy and selected parts of the Air
Force and Army. By the beginning of FY 1990, approximately 6,000
employees will have been converted to CIPMS. When full implementation is
accomplished on a phased approach during FY 1990, 11,000 employees will
have been converted to the new excepted service personnel system.
Recommendation 6 The Panel recommends that the head of each intelligence
agency be authorized to issue a dual compensation waiver for a limited number
of (retired military) individuals, designated for specific positions of
critical importance to the agency.
Response: The CPCC supports this recommendation and has
the Personnel Action Plan as a short-term initiative.
RECRUITMENT COORDINATION
included it in
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Recommendation 7 Rather than force these applicants (who are not hired), many
of whom have passed security clearance procedures, to go through another
agency's full application process, the NAPA Panel recommends that the
intelligence agencies seek ways to increase coordination of entry-level
recruitment.
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Response: Through the interagency mechanism established during the NAPA
study process, Community agencies have begun to coordinate the exchange of
applicant information with the express permission of and/or request from
the applicant. For example, DIA recently shared approximately 60
applicants that successfully met initial security requirements with the
CIA. DIA informed the applicants that it was not in a hiring position but
that CIA was interested in employees in their field; the applicants were
given a specific CIA contact to call if interested. The NSA also expects
to have entry?level applicants to share with interested Community agencies
later this summer.
PERSONNEL SECURITY
Recommendation 8 The Panel recommends that the Intelligence Community
agencies take innovative action--such as that reflected by NSA's Limited
Interim Clearances. The Panel also recommends that agencies examine their
(personnel security) processing times and determine the reasons for the time
frames, whether internal or external, and take corrective actions.
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Response: A number of Intelligence Community agencies have begun
initiatives in this area. DIA intends to provide interim clearances, in a
limited number of situations, as suggested by NAPA. Intelligence
Community agencies are also examining ways to expedite their personnel
security procedures. For example, the FBI is in the process of
establishing a separate office for background investigations that will
assess employment suitability for the entire Bureau; previously, this
function was scattered among five divisions. The centralization of this
function will streamline processing times and contribute to a uniform
approach. The CIA has also begun to perform polygraphs at the beginning
of a security investigation rather than at the end in order to make better
use of the considerable resources required in the investigation process.
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Recommendation 9 The Panel believes the clearance delays for these (military)
departments must be reduced. To the extent that the time frame is largely due
to processing in the Defense Investigative Service (DIS), the Panel recommends
that the Intelligence Community agencies should work together with that
service to address these issues. 25X1
Response: This recommendation affects only those Department of Defense
components whose background investigations are conducted by the DIS. The
CPCC will work with DIS to support necessary investigator staffing levels
to improve the situation. 25X1
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CONFIDENTrAL--
RETAINING TALENTED STAFF
Recommendation 10 The Panel recommends that DIA, the FBI, and the military
department intelligence components closely monitor their attrition rates, and
take appropriate actions to ensure that they do not continue to rise.
Further, the Panel recommends that the Department of State examine the Civil
Service turnover rates in INR, with a goal of creating a planned process of
employee reassignment.
Response: Since attrition is caused by different factors in different
agencies, the CPCC will request that each agency develop a data base on
causes of attrition by discipline. With this information, agencies can
then take action on the specific causes. The data base should include
information from exit interviews. With regard to INR, procedures are now
being developed to address the civil service turnover issue.
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CHAPTER FOUR: INVESTING IN THE INTELLIGENCE COMMUNITY WORK FORCE
TRAINING FOR MISSION ACCOMPLISHMENT
Recommendation 11 The Panel recommends that all intelligence agencies develop
a systematic process for examining the extent to which current training
efforts will be sufficient for longer term needs. Such a more formal training
needs assessment will be crucial to adapting agency programs to future
workload and changing work force demands. This is especially necessary in INR
where there is only the beginning of a formal intelligence training program
for Civil Service or Foreign Service employees.
Response: The Intelligence Community Training Director's Group is in the
process of examining this issue, as are individual agencies themselves.
For example, in May 1989 all DoD intelligence training officials met to
discuss needs assessment, the first step in a systematic process under the
General Intelligence Training System. In the Department of Defense
military components, special emphasis is being paid to training for
civilian intelligence careerists. Career development patterns are being
closely examined to determine the competencies required for subsequent
growth and movement within the intelligence career fields.
Recommendation 12 The NAPA Panel recommends that an Intelligence Community
Committee on Training and Career Development be established.
Response: The Intelligence Community Training Director's Group is an
existing body that meets for the purpose of exchanging training
information and ideas. Agencies represented in this group include CIA,
DIA, FBI, NSA, State, and the Defense Intelligence College. By adding a
Department of Defense (C3I) representative to this group, the CPCC
believes this group can serve the function advocated by the NAPA Panel.
Recommendation 13 The Panel supports DIA's establishment of a basic ordering
contract, which promises to make the external training procurement process
operate more efficiently. It recommends that the Community examine this
initiative for potential use on an Intelligence Community-wide basis.
Response: The DIA briefed Community members on their basic ordering
contract procedure. It was determined that members of the Community
already use this procedure when possible under the Competition in
Contracting Act/Contract Rules and Regulations.
Recommendation 14 The Panel endorses the recent DoD/OPM proposal to lift
Government Employees Training Act (GETA) restrictions and permit agencies to
use external training resources more flexibly. If the executive branch
proposals are not submitted to the 101st Congress, the Panel recommends that
the intelligence agencies request a presidential exemption to this, as
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Congress believes that restrictions should be lifted, the intelligence
committees could propose a statutory exemption.
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Response: This recommendation is by far the most important one made by
NAPA affecting training and career development. The CPCC believes that
exemption from the GETA will assist in recruitment, cross training (using
external academic sources), and developing multidisciplined personnel.
This initiative, listed as a short-term initiative in the Personnel Action
Plan, will give the Intelligence Community agencies the flexibility they
need to compete with the private sector for critical skills and to meet
unique and growing requirements.
CAREER DEVELOPMENT
Recommendation 15 The Panel recommends that the agencies establish or
strengthen, as appropriate, their career development programs.
Response: Career development programs are based on each Intelligence
Community agency's career path structure and priorities for the agency and
employee. Intelligence Community agencies are seeking to examine and
improve these structures. For example, DIA is republishing an updated
version of its career ladders this summer and will be adding a new program
for clerical advancement into professional positions this fall (for those
with college educations that are not directly applicable to the
intelligence field).
Recommendation 16 The NAPA Panel recommends that the military departments
establish within each of the three intelligence components a central
capability for career development matters such as planning, providing
information, consulting, and training supervisors.
Response: The CPCC recommends that the military departments be provided
the resources necessary to establish career development programs within
each of the three intelligence components. These career development
programs should include both technical and non-technical (management)
personnel. Some Intelligence Community agencies have already provided DoD
with .information from which career development programs could be modeled.
STAFFING REDUCTIONS AND OUTPLACEMENT: ENSURING THE INVESTMENT IS WITH THE
RIGHT PEOPLE
Recommendation 17 The Panel recommends that the Intelligence Community
agencies, if faced with future forced staffing level reductions, cooperate to
place surplus employees with another of the Intelligence Community agencies
that has a need for such skills.
Response: Currently, there is an informal effort to refer employees to
other agencies for employment as a result of an individual's career change
or other personal factors. With the creation of the CPCC and its
specialized working groups, mechanisms for greater cooperation and
formalized information-sharing now exist that can be used to discuss
possible placement of surplus employees.
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Recommendation 18 The Panel believes employees in the Intelligence Community
agencies should be able to transfer from an excepted appointment status to the
competitive Civil Service. The Panel recommends that the Intelligence
Community Staff examine the research done to date on this issue and develop a
proposal to advance it.
Response: The DoD is currently in the process of negotiating an agreement
with the Office of Personnel Management (OPM) to allow such transfer
eligibility. Based on the outcome of this approach, other intelligence
agencies may pursue similar parallel agreements with OPM. This is a
short-term initiative in the Personnel Action Plan.
Recommendation 19 To provide greater flexibility to deal effectively and
expeditiously with overage situations, the Panel recommends that Congress
authorize the head of Intelligence Community agencies to approve early
optional retirement when it is considered necessary to reduce strength or when
large overages occur in specific occupational skills.
Response: For those agencies without the ability to exercise the
provision of early optional retirement, additional legislative authorities
will be required. The CPCC working groups will be examining this issue as
a medium-term initiative.
Recommendation 20 The Panel recommends sharing the information on involuntary
removal cases--being mindful of employee rights of privacy--with the other
agencies of the Intelligence Community, perhaps in coordination with the
Intelligence Community Staff. The other agencies would have an opportunity to
do their own (security) risk assessment, as may be applicable.
Response: An informal, ad hoc mechanism for such referrals presently
exists, functioning on a case-by-case basis. The creation of a more
formal mechanism would require a close examination of the implications
possible personal liability of those involved in the referral process.
of
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Recommendation 21 The Panel recommends that all Intelligence Community
agencies without effective outplacement programs establish them, and that they
look to the CIA and State programs, as well as the private sector, as models
for the design of their own programs.
Response: Two Intelligence Community agencies with the greatest
'requirements for outplacement services (CIA and State) have successful
programs in place. CIA is currently planning to expand its program from
one to three months. DIA is considering use of State's program on a
reimbursable basis for selected situations. Other Intelligence Community
agencies have limited requirements and do not see a need for additional
outplacement services at this time. There are several tools available
within the Executive Branch to assist agencies with employees that have
outplacement needs, however.
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CHAPTER FIVE: CREATING A MORE DIVERSE WORK FORCE
Recommendation 22 Most of what the NAPA Panel believes needs to be done in
the equal employment area is a question of enhanced degree of effort rather
than a new activity. The Panel recommends that all intelligence agencies
conduct regular analysis of retention, promotion, and training participation
data. If the agencies are to retain the employees they have worked so hard to
attract, they need to make concerted efforts in these areas.
Response: All Intelligence Community agencies currently conduct regular
equal employment analyses as required by Equal Employment Opportunity
Commission Management Directive 714, Affirmative Employment Plan. The
CPCC believes that Intelligence Community agencies are fully supportive of
equal employment objectives and have a strong commitment to hire and
promote minority members.
Recommendation 23 The Fiscal Year 1989 Intelligence Authorization Act
(P.L. 100-453) requires the DCI and the Secretary of Defense to submit a
report to the House Permanent Select Committee on Intelligence (HPSCI) and the
Senate Select Committee on Intelligence (SSCI) analyzing each equal employment
opportunity group's representation in the CIA and the NSA. The law also
requires that agencies prepare a plan to address underrepresentation of any
such equal employment group by 30 September 1991. The Panel supports this
initiative.
Further, the Panel recommends that:
this initiative be extended to DIA and the FBI;
the Intelligence Community Staff receive and monitor these reports;
and,
these agencies share with each other their successful techniques in
achieving these goals.
Response: The CPCC recommends that the EEOC Management Directive 714
plans prepared by each Intelligence Community agency be submitted to the
Intelligence Community Staff for the HPSCI and SSCI in lieu of the special
reports required by the FY 1989 Intelligence Authorization Act (P.L.
100-453). This will not only eliminate duplicative work but will also
result in consistent, and therefore comparable, data. The CPCC also
recommends that these reports be exchanged with the other Intelligence
Community agencies; DIA and NSA plans were provided to other Community
members at an EEO Officers meeting on 30 March 1989. This is a short-term
initiative in the Personnel Action Plan.
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CONE :DENT
Recommendation 24 The Panel recommends that the intelligence agencies
consider some of the options recently adopted by the private sector, such as
the "adopt a school" programs or agency?sponsored high school debating teams.
Response: The EEO Officers Group, consisting of EEO officers from each of
the Intelligence Community agencies, will invite private sector
representatives to discuss their EEO programs. It will be up to each
agency to determine if any of these programs would be appropriate for its
needs. The "Stokes" Program of tuition assistance and work experience for
college students has been successfully used by the CIA and NSA. An
initiative to extend the authority to conduct such a program to other
Intelligence Community agencies will be pursued as a medium?term
initiative in the Personnel Action Plan. A legislative proposal covering
DIA had already been submitted to the Congress prior to issuance of the
NAPA Report.
Recommendation 25 In the last analysis, the Panel recommends that top
management in each of the intelligence agencies must make a sustained
commitment to recruit members of minority groups and to assure that women and
members of minority groups advance to top positions.
Response: Intelligence Community agency heads are committed to minority
recruitment and advancement. For example, the FBI Director recently
placed the FBI Equal Employment Opportunity Office directly within his
office to emphasize the importance of EEO issues. One of the best ways to
improve minority recruitment is to give top management greater recruiting
flexibilities in general, particularly in the areas of compensation and
training opportunities.
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CHAPTER SIX: COMPENSATION SYSTEMS FOR THE NEXT CENTURY
DIFFERENT PAY FOR WORK AT THE SAME GRADE
Recommendation 26 The Panel recommends that all intelligence agencies share
their compensation approaches through the proposed Senior Coordinating Group
to assure that they are not unduly competing with one another. These systems
should be sufficiently flexible that the individual intelligence agencies can
compensate workers at salary rates that permit them to compete effectively in
the employment market.
Response: The CPCC believes the Intelligence Community agencies have been
sharing compensation policies to some extent but with the creation of the
CPCC and its working groups, will have an official forum in which to
formally discuss these matters.
DOMESTIC ALLOWANCES AND PAY
Recommendation 27 The Panel recommends that Congress give the intelligence
agencies the authority to establish domestic local pay rates (cost-of-living)
for those employees who are moved at the order of the government.
Response: The CPCC believes this is a high-priority issue, paralleling
the consideration under way by the Office of Personnel Management for the
government as a whole. This initiative, which would require authorizing
legislation for agencies without such authority, is incorporated in the
Personnel Action Plan as a short-term initiative.
OVERSEAS PAY AND ALLOWANCES
Recommendation 28 The Panel recommends that Section 4(2)(d) of the Central
Intelligence Agency Act of 1949 be extended to permit the Director to bring
all intelligence agencies' overseas allowances and benefits into alignment
with those the Secretary of State establishes for US government civilian
employees overseas.
Response: The CPCC agrees that, consistent with individual Intelligence
Community agency missions, it is desirable to make overseas allowances and
benefits for Intelligence Community agencies equitable with those
established by the Secretary of State. This is included in the Personnel
Action Plan as a medium-term initiative.
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Recommendation 29 The Panel recommends that the Intelligence Community as a
whole needs to examine the overseas compensation practices for intelligence
employees, including basic salaries overseas and allowances.
Recommendation 30 The Panel does not recommend one method (of managing
overseas pay adjustments) over another, but strongly recommends that the
Intelligence Community find a plan that is equitable to the employees of all
intelligence agencies.
Response to #29 and #30: The CPCC agrees that it is highly desirable to
provide equal pay, benefits, and allowances for like work being performed
at overseas locations, not only between Intelligence Community agencies
but for categories of employees within a particular Intelligence Community
agency as well. This issue is of primary urgency to NSA at present. It
is incorporated in the Personnel Action Plan as a short?term initiative.
ENHANCED PAY FLEXIBILITY
Recommendation 31 Given the success of the China Lake-project, the positive
views toward other demonstrations under way, and the apparent success of the
pilot pay banding project at the CIA, the Panel recommends that NSA be
authorized to test revised compensation systems. The Panel fully endorses
recruitment, performance, and relocation bonuses. The Panel does not favor
retention bonuses for individuals, although it does not rule out retention
bonuses for a whole series or group of positions.
Response: The CPCC endorsed NSA's plans to develop a flexible pay and
bonus program. CIA also has plans to extend its pay banding program to
include a few more occupations. These plans are incorporated as
short?term initiatives in the Personnel Action Plan.
Recommendation 32 The Panel recommends that, should NSA want to test the pay
confidentiality concept, it be permitted to do so. NSA should carefully
monitor employee perceptions of this concept and its impacts on morale.
Response: The CPCC believes this is an NSA prerogative and thus does not
require Community action. However, confidentiality would be an
automatic/integral part of any flexible pay system that does not adhere to
a grade/step structure.
Recommendation 33 The Panel recommends that the intelligence agencies and
Congress recognize that the degree of flexibility allowed in determining the
distribution of a given amount of pay within a group of workers can be changed
without necessarily increasing the cost overall.
Response: The CPCC agreed that giving line management authority the
flexibility to reward and compensate employees was desirable, but
expressed reservations about controls and equity. The CIA intends to
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pursue a decentralized system that will eventually give line management
authority to manage their personnel and resources within specific budget
constraints. CIA's proposal is included in the Personnel Action Plan as a
long-term initiative. 25X1
BENEFITS PROPOSALS
Recommendation 34 The Panel recommends that the CIA be permitted to implement
its proposed flexible benefits package, and that its experiences serve as a
research project for the federal government. 25X1
Response: The CPCC endorses CIA's flexible benefits project and has
included it in the Personnel Action Plan as a short-term initiative.
Recommendation 35 The Panel also recommends that the CIA carefully evaluate
costs of benefits changes, especially those relating to health benefits. Cost
containment on health benefits must be an important objective in the design (-4.
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Response: The CIA agrees that program costs must be monitored and has
included an evaluation of costs in its overall planning and strategy.
Recommendation 36 The Panel does not endorse that portion of the CIA proposal
that would permit employees to sell unused leave to one another or back to the
agency.
Response: CIA has no further interest in pursuing this initiative.
COMPENSATION SYSTEMS FOR THE NEXT CENTURY
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Recommendation 37 The Panel firmly recommends that the Congress eliminate the
pay cap and reduce pay compression at the executive levels. 25X1
Response: The CPCC fully endorses this recommendation, one that has been
suggested on numerous occasions by other commissions studying federal
personnel systems. However, the CPCC does not believe additional work in
this area will be useful until the initiative is considered for the
federal work force as a whole.
Recommendation 38 Ultimately, the Panel recommends that all intelligence
agencies have the authority, similar to that of CIA, to select, appoint, and
compensate staff such that they can attract and retain a high-quality work
force. The Panel recommends that the intelligence agencies work through the
proposed Senior Coordinating Group to develop the parameters of a common
framework of authorities.
Response: The CPCC supports this recommendation and has included it in
the Personnel Action Plan as a medium-term initiative. This proposal will
require extensive study and analysis before the potential impact of these
new authorities can be fully understood.
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CHAPTER SEVEN: COORDINATING HUMAN RESOURCE POLICY
Recommendation 39- The Panel recommends establishing a Senior Coordinating
Group as the option which best ensures that the Intelligence Community has an
integrated approach toward HRM change while leaving the responsibility for
assessing the potential impacts of change where it belongs--with the
intelligence agencies.
Response: The Community Personnel Coordinating Committee (CPCC) has been
established and has approved a Personnel Action Plan outlining short-,
medium-, and long-term personnel initiatives proposed by the Intelligence
Community agencies or developed as a result of the NAPA study. The CPCC
is supported by specialized working groups that examine Community
personnel initiatives at the working level and make recommendations to the
CPCC. The CPCC consists of the personnel directors of CIA, NSA, DIA, DoD,
FBI, and INR and has met twice since its inception last March.
Recommendation 40 The Panel recommends that the intelligence agencies keep
the congressional committees apprised of major issues which may give rise to
important changes in HRM policies.
Response: Better communication with the congressional committees will be
greatly enhanced by better coordination and understanding of personnel
issues within the Community. Coordination and apprisal of personnel
initiatives will improve as Intelligence Community agencies, at both the
CPCC and the specialized working groups level, cooperate and learn from
each other.
Recommendation 41 The project staff offers the following recommendations,
which it believes can be achieved if Congress and the intelligence agencies
work together:
1) Determine whether there is a need for additions to compensation for
Intelligence Community employees assigned overseas.
2) If this can only be determined with input from technical studies,
these should be commissioned by the Senior Coordinating Group
(recommended in the NAPA Report) or another Community-wide entity.
Any such studies should consider the differences in rank-in-person
and rank-in-position classification systems.
3) When contemplating pay adjustments for their organization or groups
of employees within it, Intelligence Community agencies should assess
the impact these will have on other intelligence agencies.
4) The congressional intelligence committees can best oversee
Intelligence Community agencies in their efforts to coordinate
overseas pay by examining broad issues--such as relative change in
agency payroll--rather than individual decisions.
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Response: These suggestions will be addressed in the course of examining
the NAPA Panel recommendations or as a result of the CPCC coordinating
mechanism. The CPCC did not see the need to cOnduct further technical
studies of overseas benefits, however.
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NAPA ACTION PLAN
SHORT-TERM INITIATIVES (WITHIN ONE YEAR)
COMPENSATION AND BENEFITS
1. DOMESTIC LOCAL (GEOGRAPHICAL) PAY RATES
Community personnel that are transferred to a high-cost area by order
of the government should be given additional compensation to meet a higher
cost of living. CIA already has an "Addition to Compensation" to
accommodate this problem. NSA has special pay rates for a few of its
domestic locations based on Title 5 U.S.C., Section 5303; however, this
authority is not sufficient to establish geographic rate schedules at
other locations. High cost areas (e.g., New York) cannot be supported
under 5 U.S.C. since there are no skill comparisons with the private
sector to make wage and salary determinations. FBI would like geographic
pay rates to include all employees in a given location (local hires) as
well as those relocated by the government.
Legislative Impact: Requires authorizing legislation for agencies
without authority.
2. DUAL COMPENSATION WAIVER
The Intelligence Community would benefit from the ability to hire
selected military retirees with unique, critical skills at a compensation
rate that will give these particular retirees the incentive to return to
public service. This is especially critical to the military service
components that need to retain specialized knowledge and skills attainable
only through military service. This initiative would give the head of
each intelligence agency the authority to issue a dual compensation waiver
for a limited number of individuals designated for specific positions of
critical importance to the agency. An annual reporting requirement to the
Intelligence Oversight Committees could be built into this process.
Legislative Impact: Requires authorizing legislation.
3. EXAMINE INTELLIGENCE COMMUNITY OVERSEAS PAY POLICIES
This initiative would examine the pay policies of different agencies
for like work being performed at overseas locations (without regard to the
type of location or support agreements thereto). In particular, NSA would
like to extend the 9.6 percent pay to additional types of overseas
locations.
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Legislative Impact: No new legislation required for NSA, but as a
matter of policy, the Intelligence Oversight Committees would be kept
informed.
4. NSA FLEXIBLE PAY AND BONUS SYSTEMS
This initiative would follow other successful flexible pay and bonus
projects, such as the one implemented at China Lake and at the CIA, and
allow NSA to develop flexible pay and bonus systems to allow it to compete
with industry on a continuing basis. FBI would like to explore a limited
pay banding project, and the CIA would like to explore expanding its pay
banding policy to other occupations.
Legislative Impact: Requires authorizing legislation for agencies
without authority and, as a matter of policy, the Intelligence
Oversight Committees would be kept informed.
5. CIA FLEXIBLE BENEFITS PROGRAM
This initiative would provide CIA employees with a menu of
alternative health benefits, life insurance options, etc., that would
allow them to create a health benefits plan tailored to their specific
needs. Intelligence Community agencies agreed that CIA should proceed
with the development and implementation of this program and serve as a
research project for other governmental agencies. This initiative was a
NAPA recommendation.
Legislative Impact: Does not require new legislation but certain
features of the CIA program would require notification to the
Intelligence Oversight Committees.
6. PAY FLEXIBILITY: RELIEF FROM END-STRENGTH ACCOUNTABILITY
Congress has granted Army relief from end-strength accountability in
its nonintelligence appropriations. This is not true for funds provided
through the DCI. The ability to manage manpower based on funding limits
rather than manpower controls is highly desired by DoD managers of
intelligence functions to assist them in the day-to-day administration of
their organizations. Funding ceilings would not be affected, although
end-year manpower levels could deviate from planned targets.
Legislative Impact: Requires legislative changes.
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RECRUITMENT AND RETENTION
7. FBI EXEMPTION FROM TITLE 5, U.S.C.
This initiative would exempt the FBI from the Title 5, U.S.C.
position classification requirements of the General Schedule and the
prevailing rate systems in order to allow greater flexibilities to select,
appoint, and maintain a highly qualified work force.
Legislative Impact: Requires legislative exemption from Title 5,
U.S.C. for the FBI.
TRAINING AND CAREER DEVELOPMENT
8. EXEMPTION FROM GETA RESTRICTIONS
This initiative would lift Government Employees Training Act
restrictions and permit agencies to use external training resources more
flexibly. This would allow Intelligence Community agencies to develop
projected future skills and knowledge needs and establish undergraduate
and graduate study programs for current employees and for high?caliber
applicants as a recruitment incentive.
Legislative Impact: The first step would be to determine whether an
Executive Order could provide the appropriate exemption. If it could
not, new legislation would be required.
EQUAL EMPLOYMENT OPPORTUNITY ISSUES
9. EEO REPORTING FORMAT
This initiative would require Intelligence Community agencies to
submit to the Intelligence Community Staff EEO reports in the MD 714
format; these EEO reports would then be passed to the House Permanent
Select Committee on Intelligence (HPSCI) and Senate Select Committee on
Intelligence (SSCI). Presently, the Intelligence Community Staff submits
a statistical report to the SSCI and HPSCI indicating each equal
employment opportunity group's representation in the respective agencies.
These statistics are not always comparable, however. Use of the existing
MD 714 format will save the work of creating separate, different plans and
reports and will allow the information to be developed and interpreted in
a more consistent manner.
Legislative Impact: None
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RETIREMENT AND OUTPLACEMENT
10. CAREER TRANSITION
CIA proposes to extend its present 30?day retirement program to a
90?day program patterned after the State Department's career transition
program. The purpose of this program is to encourage senior officers to
continue their careers outside the Agency and stimulate the "flow" of
career employees.
Legislative Impact: The Intelligence Oversight Committees would be
kept informed.
11. TRANSFER FROM EXCEPTED APPOINTMENT STATUS TO COMPETITIVE CIVIL SERVICE
The DoD is in.the process of negotiating an agreement with the Office
of Personnel Management to allow CIPMS employees to transfer from an
excepted appointment status to the competitive Civil Service. Other
Intelligence Community agencies are interested in pursuing similar
agreements with OPM if the DoD approach is successful. If separate,
unilateral agreements with OPM are not feasible, the Community may
consider other mechanisms--such as a DCI?OPM agreement--or seek ?
legislation authorizing such action.
Legislative Impact: May require authorizing legislation if
negotiations with OPM are not successful.
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MEDIUM?TERM INITIATIVES (WITHIN FIVE YEARS)
COMPENSATION AND BENEFITS
1. COMPARABLE AUTHORITIES
The NAPA Panel recommended that all intelligence agencies be given
the authority, similar to that of CIA, to select, appoint, and compensate
staff to attract and retain a high?quality work force. Through the
Community Personnel Coordination Committee, the Intelligence Community's
senior personnel group, parameters for developing a framework for these
authorities must be developed. CIA authorities will be the benchmark
against which the other Intelligence Community agencies will make their
assessments.
Legislative Impact: Requires authorizing legislation.
2. GIVE DCI AUTHORITY TO ALIGN OVERSEAS ALUOWANCES AND BENEFITS FOR
INTELLIGENCE COMMUNITY EMPLOYEES WITH FOREIGN SERVICE
Some Intelligence Community agencies already pay overseas allowances
and benefits that are fairly consistent with that of the Foreign Service.
However, many Intelligence Community employees are not receiving
comparable benefits. This issue is of particular importance to NSA.
Legislative Impact: Requires authorizing legislation.
RECRUITMENT AND RETENTION
3. REDUCE CLEARANCE DELAYS FOR MILITARY DEPARTMENTS
This initiative would require that greater resources be given to the
Defense Investigative Service for additional staffing to alleviate
clearance delays.
Legislative Impact: Requires additional appropriations for DoD.
4. RELIEF FROM OPM REVIEW/OVERSIGHT OF CIPMS
The unique requirements and systems encompassed by the CIPMS require
a comprehensive, consistent, and common authority base. Absent specific
exempting language in Title 10 U.S.C., OPM policies and procedures will
apply to CIPMS--particularly OPM's authority to review and approve
performance appraisal systems. DoD seeks relief from OPM oversight on
these largely administrative issues to prevent inconsistencies and
confusion; the division in administrative authority and evaluation
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authority between OPM and DoD is particularly a problem in the case of
performance appraisal systems. Relief from OPM oversight is key to the
coherent and timely implementation of the CIPMS.
Legislative Impact: Requires changes to Section 1590, Title 10.
EQUAL EMPLOYMENT OPPORTUNITY ISSUES
5. EEO RECRUITMENT AUTHORITIES
The "Stokes" Program of tuition assistance and work experience for
college students is considered to be a useful mechanism for recruiting
minority employees who are suitable to work at CIA and NSA. This
initiative would extend authorities currently enjoyed by CIA and NSA to
the other intelligence agencies to allow for similar recruitment
activities.
Legislative Impact: Requires authorizing legislation for agencies
without such authority.
RETIREMENT AND OUTPLACEMENT
6. APPROVAL FOR EARLY OPTIONAL RETIREMENT
Intelligence Community managers would benefit from the ability to
approve early optional retirement for employees affected by staff overages
(e.g., due to budgetary reductions or overstaffing in specific
occupational skills). For those agencies without the ability to exercise
the provision of early optional retirement, new legislation would be
needed. There are also some indications that OPM could decentralize this
authority.
Legislative Impact: If OPM does not decentralize the authority to
approve early optional retirement, legislation for agencies without
such authority would be required.
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LONG?TERM INITIATIVES (FIVE+ YEARS)
COMPENSATION AND BENEFITS
1. PAY CAP AND PAY COMPRESSION
All agencies agreed that the pay cap should be eliminated and that
pay compression should be reduced at the executive level. Given the
studies and work by other groups concerning this issue, the Intelligence
Community believes that specific strategies or actions should not be
pursued at this time. However, this issue is of great importance and
could have a great impact on Intelligence Community personnel policies.
Legislative Impact: Requires legislative changes.
2. AUTHORITY TO DEVELOP SEPARATE PAY SCALES
The OPM?administered General Schedule wage system has been judged to
be at least 10 percent behind comparable private industry pay rates. DoD
would thus like to have the authority to develop separate pay scales. The
Military Departments would benefit greatly from any authorities granted to
establish truly competitive pay structures. This authority could
alternatively be granted to the DCI for the Community as a whole.
Legislative Impact: Requires new legislation.
3. PAY FLEXIBILITY: MANAGEMENT TO BUDGET
Enhanced pay flexibility gives managers the authority to reward top
performers and distribute a given amount of pay within a group of
workers. CIA would like to pursue a decentralized classification system
that will eventually be tied directly to line management budget authority,
giving managers the ability to manage their personnel and resources within
specific budget constraints.
Legislative Impact: No new legislation required but, as a matter of
policy, the Intelligence Oversight Committees would be kept informed.
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NON-NAPA PERSONNEL INITIATIVES
I. SHORT-TERM INITIATIVES (WITHIN ONE YEAR)
1. CIA: SPOUSAL LEAVE TRANSFER PROGRAM
CIA proposes to extend its present spousal leave transfer program
that allows one spouse (higher ranking) to transfer leave to the other
spouse in order to care for newborn children. The Intelligence Oversight
Committees did not object to the implementation of the program on a
temporary basis because it was contemplated that government-wide
legislation would be introduced. The Office of Personnel Management has
not submitted such legislation as yet. Since CIA has had good results
thus far, it would like to extend the program for another year, and
include the care of newly adopted children as well.
Legislative Impact: No new legislation required but, as a matter of
policy, the Intelligence Oversight Committees would be kept informed.
2. DOD: LABOR RELATIONS STATUTE (INTELLIGENCE ORGANIZATIONS EXCLUSIONS)
Section 7112, Title 5 U.S.C. and Executive Order 12171 exclude
specific functions and organizations from bargaining unit coverage. Some,
but not all, of the organizations in the Military Departments and some of
the positions proposed for coverage in CIPMS have been specifically
excluded from the labor relations program. DoD proposes that, in the
interest of consistency and sound management, a new Executive Order be
drafted to exclude all CIPMS positions from bargaining unit coverage.
Legislative Impact: Determine the feasibility of obtaining a new
Executive Order that applies to CIPMS as a whole. If this is not
possible, new legislation would be required to codify this exemption.
3. DOD: RELIEF FROM PROVIDING PERSONNEL DATA OUTSIDE DoD
Presently, CIA, NSA, and DIA all have statutory relief from providing
personnel data to OPM. A similar exception would assist the Services in
ensuring security by precluding the dispersion of employee data to the
many federal and non-federal sources that access the OPM data base. This
is a DoD initiative.
Legislative Impact: Requires legislative changes.
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NON-NAPA PERSONNEL INITIATIVES
II. MEDIUM-TERM INITIATIVES (WITHIN FIVE YEARS)
1. DOD: STATUTORY EXTENSION OF TRIAL PERIOD FOR CIPMS EMPLOYEES
The Military Departments would like to lengthen the trial period for
new employees from one to two years. A longer trial period is necessary
to make a judgment on suitability, especially for employees that are in
training for most of the first year or for those who start employment
without a full security clearance or access and begin their job nine
months to a year after they have come on duty.
Legislative Impact: Requires legislative changes.
2. DOD: AUTHORITY TO NEGOTIATE PERSONAL SERVICES CONTRACTS FOR EMPLOYMENT
This authority would facilitate the utilization of many skilled
individuals who would otherwise not be available for federal employment.
Retired civilian employees are an important group in this regard who often
have irreplaceable skills, who do not desire a long-term or regular
employment relationship, and who cannot be compensated as a regular
government employee because of annuity restrictions. Overall, the number
of employees that would be affected by this authority would be minimal.
Legislative Impact: Requires authorizing legislation for agencies
without authority.
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CONFIDENTIAL
The Director of Central Intelligence
Washington, D.C. 20505
28 JUL 1989
The Honorable Anthony C. Beilenson
Chairman
Permanent Select Committee on Intelligence
United States Representatives
Washington, D.C. 20515
Dear Mr. Chairman:
I am writing to forward additional information on the
Intelligence Community's plans to implement the National
Academy of Public Administration's (NAPA) Report on civilian
personnel systems. In a letter to you in April, I promised to
provide such information following a detailed Community review
of the NAPA Report and its recommendations. That review has
now been completed and is excerpted in Enclosure A. Based on
the review, the Community has developed an initial Action Plan
(Enclosure B) that covers the personnel initiatives it will
investigate further. The Community Personnel Coordination
Committee (CPCC)--established as a result of the NAPA Report
and composed of personnel directors of key agencies--concurs
with the Plan.
The Action Plan focuses primarily on NAPA's
recommendations, but a number of related issues have been
added. Initiatives are identified as short-, medium-, or
long-term, and indicate if new legislative authority is
needed. With a few exceptions, the initiatives apply to the
Community as a whole. Some--such as flexible pay for
critically skilled employees and expanded training
opportunities--parallel trends and policies currently being
studied by the Office of Personnel Management for application
throughout the Federal Government.
As I noted in my April letter, the Community is using a set
of interagency working groups to address NAPA's recommendations
and ensure that personnel initiatives are thoroughly vetted.
Those groups are now developing detailed plans and proposals
for each of the short-term initiatives identified in the Action
Plan. I will monitor their progress through the CPCC. If you
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The Honorable Anthony C. Beilenson
wish, we would be pleased to brief the Committee or Staff, as
you deem appropriate, on the Action Plan or any of the
initiatives it treats. My point of contact for such briefings,
and any additional questions on the Report, is
can be reached on
of the Intelligence Community Staff. He
I appreciate the interest and support the Oversight
Committees have shown in implementing the NAPA Report to ensure
that we continue to recruit and retain the best men and women
for the Intelligence Community. I look forward to working
closely with you to assure that the Community's personnel
management systems are equitable and consistent and provide the
tools necessary to accomplish our unique mission.
This same letter and enclosures are being sent to the
Chairman, Select Committee on Intelligence; Vice Chairman,
Select Committee on Intelligence; and the Ranking Minority
Member, House Permanent Select Committee on Intelligence.
Sincerely,
Pr T311V7la H. Wet
William H. Webster
Enclosures:
As stated
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SUBJECT: Letter to The Honorable Anthony C. Beilenson
DISTRIBUTION: (ICS 4285-89)
Copy 1 - Addressee
2 - DCI
3 - Executive Registry
4 - AD/ICS
5 - D/OCA
6 - C/LL/ICS
7 - D/PPO
8 - PPO Subject
9 - PPO Chrono
10 - ICS Registry
DCl/ICS/PPOi
(20 July 1989) STAT
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CONFIDENTIAL
The Director of Central Intelligence
Washington, D.C. 20505
2 8 JUL 1989
The Honorable Henry J. Hyde
Ranking Minority Member
Permanent Select Committee on Intelligence
United States Representatives
Washington, D.C. 20515
Dear Mr. Hyde:
I am writing to forward additional information on the
Intelligence Community's plans to implement the National
Academy of Public Administration's (NAPA) Report on civilian
personnel systems. In a letter to you in April, I promised to
provide such information following a detailed Community review
of the NAPA Report and its recommendations. That review has
now been completed and is excerpted in Enclosure A. Based on
the review, the Community has developed an initial Action Plan
(Enclosure B) that covers the personnel initiatives it will
investigate further. The Community Personnel Coordination
Committee (CPCC)--established as a result of the NAPA Report
and composed of personnel directors of key agencies--concurs
with the Plan.
The Action Plan focuses primarily on NAPA's
recommendations, but a number of related issues have been
added. Initiatives are identified as short-, medium-, or
long-term, and indicate if new legislative authority is
needed. With a few exceptions, the initiatives apply to the
Community as a whole. Some--such as flexible pay for
critically skilled employees and expanded training
opportunities--parallel trends and policies currently being
studied by the Office of Personnel Management for application
throughout the Federal Government.
As I noted in my April letter, the Community is using a set
of interagency working groups to address NAPA's recommendations
and ensure that personnel initiatives are thoroughly vetted.
Those groups are now developing detailed plans and proposals
for each of the short-term initiatives identified in the Action
Plan. I will monitor their progress through the CPCC. If you
CONFIDENTIAL
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The Honorable Henry J. Hyde
wish, we would be pleased to brief the Committee or Staff, as
you deem appropriate, on the Action Plan or any of the
initiatives it treats. My point of contact for such briefings,
and any additional questions on the Report, is
can be reached on
of the Intelligence Community Staff. He
I appreciate the interest and support the Oversight
Committees have shown in implementing the NAPA Report to ensure
that we continue to recruit and retain the best men and women
for the Intelligence Community. I look forward to working
closely with you to assure that the Community's personnel
management systems are equitable and consistent and provide the
tools necessary to accomplish our unique mission.
This same letter and enclosures are being sent to the
Chairman, Select Committee on Intelligence; Vice Chairman,
Select Committee on Intelligence; and the Chairman, House
Permanent Select Committee on Intelligence.
Sincerely,
24,
William H. Webster
Enclosures:
As stated
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SUBJECT: Letter to The Honorable Henry J. Hyde
DISTRIBUTION: (ICS 4285-89)
Copy 1 - Addressee
2 - DCI
3 - Executive Registry.
4 - AD/ICS
5 - D/OCA
6 - C/LL/ICS
7 - D/PPO
8 - PPO Subject
9 - PPO Chrono
10 ICS Registry
DCl/ICS/PPO,
(20 July 1989) STAT
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CONFIDENTIAL
The Director of Central Intelligence
Washington, D.C. 20505
2 8 JUL 1989
The Honorable William S. Cohen
Vice Chairman
Select Committee on Intelligence
United States Senate
Washington, D.C. 20510
Dear Mr. Vice Chairman:
I am writing to forward additional information on the
Intelligence Community's plans to implement the National
Academy of Public Administration's (NAPA) Report on civilian
personnel systems. In a letter to you in April, I promised to
provide such information following a detailed Community review
of the NAPA Report and its recommendations. That review has
now been completed and is excerpted in Enclosure A. Based on
the review, the Community has developed an initial Action Plan
(Enclosure B) that covers the personnel initiatives it will
investigate further. The Community Personnel Coordination
Committee (CPCC)--established as a result of the NAPA Report
and composed of personnel directors of key agencies--concurs
with the Plan.
The Action Plan focuses primarily on NAPA's
recommendations, but a number of related issues have been
added. Initiatives are identified as short-, medium-, or
long-term, and indicate if new legislative authority is
needed. With a few exceptions, the initiatives apply to the
Community as a whole. Some--such as flexible pay for
critically skilled employees and expanded training
opportunities--parallel trends and policies currently being
studied by the Office of Personnel Management for application
throughout the Federal Government.
As I noted in my April letter, the Community is using a set
of interagency working groups to address NAPA's recommendations
and ensure that personnel initiatives are thoroughly vetted.
Those groups are now developing detailed plans and proposals
for each of the short-term initiatives identified in the Action
Plan. I will monitor their progress through the CPCC. If you
CONFIDENTIAL
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The Honorable William S. Cohen
wish, we would be pleased to brief the Committee or Staff, as
you deem appropriate, on the Action Plan or any of the
initiatives it treats. My point of contact for such briefings,
and any additional questions on the Report, is
can be reached on
of the Intelligence Community Staff. He
I appreciate the interest and support the Oversight
Committees have shown in implementing the NAPA Report to ensure
that we continue to recruit and retain the best men and women
for the Intelligence Community. I look forward to working
closely with you to assure that the Community's personnel
management systems are equitable and consistent and provide the
tools necessary to accomplish our unique mission.
This same letter and enclosures are being sent to the
Chairman, Select Committee on Intelligence; the Chairman, House
Permanent Select Committee on Intelligence; and the Ranking
Minority Member, House Permanent Select Committee on
Intelligence.
Sincerely,
Is/ Willi2m H. 'Webster
William H. Webster
Enclosures:
As stated
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STAT
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SUBJECT: Letter to The Honorable William S. Cohen
DISTRIBUTION: (ICS 4285-89)
Copy 1 ? Addressee
2 ? DCI
3 ? Executive Registry
4 ? AD/ICS
5 ? D/OCA
6 ? C/LL/ICS
7 ? D/PPO
8 ? PPO Subject
9 ? PPO Chrono
10 ? ICS Registry
DCl/ICS/PPO,
(20 July 1989) STAT
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, MEMORANDUM FOR:
FROM:
SUBJECT:
ER 89-2812
11 JUL
Agency NAPA Implementation Study Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. I realize that your participation as your
Directorate representative to the Agency NAPA Implementation
Study Group required you to fit another activity into an
already packed schedule. I do appreciate your help and
dedication. On behalf of the Agency population, let me "Thank
You for your input ,to this very necessary endeavor.
6rJames H. Xylor
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ER 89-2812/1
4
STAT
STAT
MEMORANDUM FOR:
FROM:
SUBJECT:
11 JUL wit
Agency NAPA Implementation Study Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. I realize that your participation as your
Directorate representative to the Agency NAPA Implementation
Study Group required you to fit another activity into an
already packed schedule. I do appreciate your help and
dedication. On behalf of the Agency population, let me "Thank
You for your input to this very necessary endeavor.
"--James H. T'dylor
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ER 89-2812/2
STAT
STAT
,
MEMORANDUM FOR:
FROM:
SUBJECT:
11 JUL 1989
Agency NAPA Implementation Study 'Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. I realize that your participation as your
Directorate representative to the Agency NAPA Implementation
Study Group required you to fit another activity into an
already packed schedule. I do appreciate your help and
dedication. On behalf of the Agency population, let me "Thank
You for your input to this very necessary endeavor.
4/James H. Taylor
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ER 89-2812/3
MEMORANDUM FOR:
FROM:
SUBJECT:
.1 1 JUL 1989
Agency NAPA Implementation Study Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. I realize that your participation as your
Directorate representative to the Agency NAPA Implementation
Study Group required you to fit another activity into an
already packed schedule. I do appreciate your help and
dedication. On behalf of the Agency population, let me "Thank
You" for your input to this very necessary endeavor.
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644,
STAT
STAT
6
MEMORANDUM FOR:
FROM:
SUBJECT:
ER 89-2812/4
ii JUL 19
Agency NAPA Implementation Study Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. I realize that your participation as legal advisor
to the Agency NAPA Implementation Study Group required you to
fit another activity into an already packed schedule. I do
appreciate your help and dedication. On behalf of the Agency
population, let me "Thank You for your input to this very
necessary endeavor.
/Tames H,.Tailrior
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ER 89-2812/5
STAT
STAT
MEMORANDUM FOR:
FROM:
SUBJECT:
11 JUL Mg
Agency NAPA Implementation Study Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. I realize that your participation as Chairperson
of the Agency NAPA Implementation Study Group required you to
fit another activity into an already packed schedule. I do
appreciate your help and dedication. On behalf of the Agency
population, let me "Thank You for your input to this very
necessary endeavor.
James H.',WS'71or
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?
STAT
STAT
MEMORANDUM FOR:
FROM:
SUBJECT:
ER 89-2812/6
truL 1289
Agency NAPA Implementation Study Group
Executive Director
Agency Review of NAPA Report
Your assistance in reviewing the report completed by the
National Academy of Public Administration (NAPA) and
recommending initiatives that should be pursued by the Agency
has been most valuable to the Agency and to me as we plan for
the future. Your participation as advisor to the Agency NAPA
Implementation Study Group was most valuable. I do appreciate
your help and dedication. On behalf of the Agency population,
let me "Thank You for your input to this very necessary
endeavor.
James H. Taylor.
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SUBJECT: Agency Review of NAPA Report
Distribution:
Original - ExRe istr
1
1
1
1
1
1
2
CAP/OP
DDA/OP/CAP,
(3 July)
2
STAT
STAT
STAT
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STAT STAT
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'
ROUTING AND RECORD SHEET
SUBJECT: (Optional) Agency Review of NAPA Report
FROM:
\....?.
EXTENSION
NO.
George W. Owens
Di rector of Personnel
ER 89-2 8 1 2 / 1 - / 6
DATE
I o -JUL 1989
TO: (Officer designation, room number, and
building)
DATE
OFFICER'S
INITIALS
COMMENTS (Number each comment to show from whom
to whom. Draw a line across column after each comment.)
RECEIVED
FORWARDED
1. Executive Registry
6E2914 OHB
0.---r?ers....4--y?A LL_
_L___t_.. -- CL--
1:r.s---.3-.1
a.A.11.....P-A
(\sheet
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2.
3.
Executive Director
4.
5.
-3.>-1...,6,--U-?
STAT
6.
7.
STAT
8.
9.
10-
11.
DD/CAP
12.
13.
14.
15.
FORM 61 0 USE PREVIOUS
1-79 EDITIONS
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STAT
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?
The Director of Central Intelligence
Washington, D.C. 20505
ICS 4266 89
1 4 JUN 1989
MEMORANDUM FOR: Vice Admiral William 0. Studeman, USN
Director, National Security Agency
SUBJECT: Implementation of the National Academy of
Public Administration (NAPA) Study
REFERENCE: Memo to DCI from DIRNSA, dtd 18 May 1989,
Subject: NAPA Report
Is/ Bill
? I appreciate your views on the NAPA Report and the
Community Personnel Coordinating Committee (CPCC). I agree we
are in a good position to make the most of the support and
momentum generated by the NAPA study. Toward this end, the
CPCC will provide a forum for the review and coordination of
personnel policies and will facilitate the sharing of
information, issues, and initiatives concerning personnel
matters. While I do not view the CPCC as a final arbiter or
oversight authority of policies proposed by individual
Intelligence Community agencies, clearly the CPCC will assess
these proposals and, where warranted, lend its support to IC
agencies as initiatives go through the Executive and
Congressional approval processes.
In addition, I would support an even greater proactive role
for the CPCC. We presently lack a mechanism for long-term
Community-wide planning in the personnel arena. By its very
composition and expertise, the CPCC will be an excellent forum
for these matters. As noted in the NAPA study, the demographic
trends for the US will make recruitment of suitable candidates
even more difficult than at present. It is clear that we must
begin now to coordinate our ideas and strategies in order to
meet the personnel challenges that are certain to confront the
Community as a whole.
I look forward to working with you to improve our personnel
management capabilities and appreciate your support for these
objectives.
1:11111
William H. Webster
STAT
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?
SUBJECT: Letter to DIRNSA re CPCC
DISTRIBUTION: (ICS 4266-89)
Copy 1 ? DIRNSA
2 ? DCI
3 ? DDCI (ER File)
4 ? D/ICS
5 ? D/PPO
6 ? PPO Subject
7 ? PPO Chrono
8 ? ICS Registry
DCl/ICS/PPO
(9 June 1989) STAT
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NATIONAL SECURITY AGENCY FORT GEORGE G. MEADE, MARYLAND 20755 - blgali
18 May 1989
MEMORANDUM FOR THE DIRECTOR, CENTRAL INTELLIGENCE
3 311:1AYir 1989 t-4/) -
/
SUBJECT: National Academy of Public Administration (NAPA)
Report - INFORMATION MEMORANDUM
STAT
25X1
1. In implementing the recommendations of the National
Academy of Public Administration (NAPA) report on Intelligence
Community (IC) personnel systems, I believe that it is important
for the Intelligence Community to capitalize on the momentum
generated by the NAPA Study by establishing effective interagency
procedures and vigorously pursuing needed legislative initiatives
with the Congress.
2. The recently established Senior Coordinating Group is
key to implementing the NAPA recommendations and carrying out the
spirit and intent of the NAPA Study. I understand, however, that
the Coordinating Group will be only an information clearing house.
3. Although the Coordinating Group presumably will be
providing guidance to interagency working groups that are
prioritizing NAPA recommendations and identifying issues for
further study, I am concerned that the results of this could be
something less than the fully coordinated approach to personnel
issues that we envisioned and that the Congress presumably expects
from us.
4. I agree with the NAPA view that uniformity among the IC
agencies is neither desirable nor necessary, but I believe that
each IC agency and the Congress would benefit from a written
assessment by the Coordinating Group of each legislative initia-
tive proposed by the individual agencies. Further, in those
instances where an initiative has particular merit and is
applicable to more than one IC agency, DCI sponsorship would
greatly facilitate the legislative process and enhance the chance
of approval by the Congress.
5. I stand ready to assist in any way possible to ensure
that the NAPA Study recommendations come to fruition and that a
coordinated community approach to personnel issues is achieved.
Very respectfully,
W. 0. STUDEMAN
Vice Admiral, U.S. Navy
Director
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163a
rn
-n
rn
rn
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?
ICS 4265-89/1
12 June 1989
MEMORANDUM FOR: Director of Central Intelligence
VIA: Deputy Director of Central Intelligence
FROM: Lieutenant General Edward J. Heinz, USAF
Director, Intelligence Community Staff
SUBJECT: Reply to DIRNSA Regarding NAPA Report
Implementation
1. The attached memorandum for your signature is a reply
to VADM Studeman concerning the function of the senior
personnel group overseeing the implementation of the NAPA
study--the Community Personnel Coordinating Committee (CPCC).
This response reflects the dialogue that occurred on this
subject during the 7 June Program Manager's lunch and clarifies
the fact that the CPCC will support Intelligence Community
agency personnel initiatives when warranted. It does not
commit the CPCC to endorsing each and every proposal related to
personnel management, however.
2. We are in the final stages of completing our NAPA
Implementation Plan and should meet our mid-summer deadline for
submission to Congress without any problems.
war.
Lieutenant Gener1V USAF
Attachment:
ICS 4266-89
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STAT
STAT
-71
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SUBJECT: Reply to DIRNSA Regarding NAPA
DISTRIBUTION: (ICS 4266-89/1)
Report Implementation
Copy 1 -
DCI
2 -
DDCI (ER File)
3 -
D/ICS
4 -
D/PPO
5 -
PPO Subject
STAT
6 -
PPO Chrono
7 -
ICS Registry
DCl/ICS/PPO/
(9
June
1989)
STAT
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STAT
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r_JILICAAJ ii V larA.Arkr, tvicia
ACTION
INFO
DATE
INITIAL
C7
DCI
X
2
DDCI -
x
3
EXDIR
X
4
D/1CS
X ?-?
.
5
DDI
6
DDA
X
7
DDO
8
DDS&T
9
Chm/NIC
10
GC
11
10
12
Compt
13
D/OCA
X
14
D/PAO
15
D/PERS
X
16
D/Ex Staff
17-
.
18
19
"
20
. .
21
22
SUSPENSE
Date
Remarks TO 4: Please recommend appropriate
response for DCI's signature.
Poks wiK ALE aAi
ER 89-2210
STAT
Executtie Secret a r y
26 May 89
Date
I.17 (10-81)
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STAT
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Next 2 Page(s) In Document Denied
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r,
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1.J.11.1.41,-,11..1 S S V 1-1 J.A.MAT
TO:
ROUTING SLIP
ACTION
INFO
DATE
INITIAL
1
DCI
X
2
DDCI
X
3
EXDIR
X
4
D/ICS
X
5
DDI
6
DDA
X
7
DDO
8
DDS&T
9
Chm/NIC
10
GC
X
11
IG
12
Compt
X
13
D/OCA
X
14
D/PAO
15
D/PERS
X
16
D/Ex Staff
17
18
19
20
op
21
22
SUSPENSE
Date
Remarks D/OCA indicates no answer expected
or required.
SSG 2181 89
STAT
11.17 (t0-81)
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Execufive Secretary
5 Jun-89
Date
STAT
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Date: c?4
To: The Director
From: Norb Garrett
A response will be prepared
for your signature.
I plan to sign a response.
/will prepare and sign a response.
to/
No answer expected or required
Norb, I prefer to
f--" ? ,
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cr.."-LIO1
? WIUJAM S. COHEN, MAINE, VICE CHAIRMAN
SAM NUNN, GEORGIA ORM HATCH. UTAH
ERNEST F. HOLLINGS, SOUTH CAROLINA FRANK MURKOWSKI, ALASKA
BILL BRADLEY, NEW JERSEY ARLEN SPECTER. PENNSYLVANIA
ALAN CRANSTON, CALIFORNIA JOHN WARNER. VIRGINIA
DENNIS DECONCINI, ARIZONA ALFONSE M. D'AMATO. NEW YORK
HOWARD M. METZENBAUM. OHIO JOHN C. DANFORTH, MISSOURI
JOHN H. GLENN. JR., OHIO
GEORGE MITCHELL. MAINE EX OFFICIO
ROBERT DOLE, KANSAS, EX OFFICIO
GEORGE J. TENET. STAFF DIRECTOR
JAMES H. DYKSTRA MINORITY STAFF DIRECTOR
L BRITT SNIDER, GENERAL COUNSEL
KATHLEEN P. McGHEE, CHIEF CLERK
United gfrtates ,trnatt SSCI 2181. 89
SELECT COMMITTEE ON INTELUGENCE
WASHINGTON, DC 20610-8475
May 18, 1989
The Honorable William H. Webster
Director of Central Intelligence
Central Intelligence Agency
Washington, D.C. 20505
Dear Judge Webster:
We are pleased to note from your letter of April 14, 1989,
that the Intelligence Community is following up on the findings
and recommendations made in the extensive personnel study
completed by the National Academy of Public Administration.
We can appreciate that because of the far-reaching nature
of the report, affected agencies would want to study it
carefully. We are also encouraged that you will have a better
idea of a legislative agenda by mid summer.
Since the Committee considers comprehensive intelligence
personnel and compensation systems as integral to the success of
effective intelligence programs, we intend to review carefully
the Community-wide legislative and administrative initiatives
once they have been developed.
Consequently, the Committee staff will remain in close
touch with to keep abreast of your progress and
to coordinate our review process, which may include one or more
hearings later this year.
Sinc ely,
/SOdokaii(
David L. Boren
Chairman
Will am S. Cohen
Vic Chairman
STAT
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
?
ROUTING AND RECORD SHEET
SUBJECT: (Optional) SSCI Letter on Implementation of National Academy of
Public Administration (NAPA) Report on Intel 1 igence
Civilian Personnel Systems
FROM:
William H. Webster
Director of Central Intelligence
EXTENSION
.
NO.
ICS 4228-89 & /1, /2, /3, & /4
DATE
14 April 1989
TO: (Officer designation, room number, and
building)
DATE
OFFICER'S
INITIALS
COMMENTS (Number each comment to show from whom
to whom. Draw a line across column after each comment.)
RECEIVED
FORWARDED
1 .
Executive Registry
2.
3.
4.
,
5.
6.
7.
8.
9.
10.
1 1 .
12.
13.
14.
03U
100
15.
FORM 610 USE PREVIOUS
1-79 EDITIONS
III -TR
i/cR 13- Lios-rie
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/
I ..Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
?
ICS 4228,89
11 April 1989
MEMORANDUM FOR: Director of Central Intelligence
VIA: Deputy Director of Central Intelligence
FROM: Lieutenant General Edward J. Heinz, USAF
Director, Intelligence Community Staff
SUBJECT:
SSCI Letter on Implementation of National Academy of Public
Administration (NAPA) Report on Intelligence Civilian
Personnel Systems
1. Attached for your signature are letters responding to a Senate Select
Committee on Intelligence inquiry on implementation of the recommendations
contained in the NAPA Report. As the letters indicate, we believe it will be
mid-summer before we finish assessing the substantive merits and legislative
impact of the NAPA recommendations. Interagency groups are now studying the
findings and recommendations to determine what our next steps should be.
2. There has been a great deal of interest in the NAPA Report from the
SSCI as reflected recently in many of our budget hearings. We expect this
interest to continue as personnel initiatives are developed by Intelligence
Community agencies and vetted through the senior coordinating group.
war nz
Lieutenant General,
Attachments:
A. Letter to Chairman, SSCI
B. Letter to Vice Chairman, SSCI
C. Letter to Chairman, HPSCI
D. Letter to Ranking Minority Member, HPSCI
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
SUBJECT: SSCI Letter on Implementation of National Academy of Public
Administration (NAPA) Report on Intelligence Civilian Personnel
Systems -
DISTRIBUTION: (ICS 4228-89)
Copy 1 -DCI
2 - DDCI
3 - Executive Registry
4 - D/ICS
5 - D/OCA/ICS
6 - C/LL/ICS
7 - D/PPO
8 - PPO Subject
9 - PPO Chrono
10 - ICS Registry
DCl/ICS/PPO/
4 April 1989) SI-AT
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Director of Central Intelligence
Washington, D.C. 20505
The Honorable David L. Boren
Chairman
Select Committee on Intelligence
United States Senate
Washington, D.C. 20510
Dear Mr. Chairman:
14 April 1989
I was pleased to receive your letter asking for additional information on
the Community's plans to implement the National Academy of Public
Administration's (NAPA) Report on civilan personnel systems. I especially
appreciate the Committee's interest in helping us follow up on NAPA's
recommendations.
In your letter, you supported my proposal to establish a senior
coordinating group to steer Intelligence Community actions derived from the
NAPA Report. That group has already met to begin developing a realistic plan
to deal with the Report's recommendations. The senior group is drawing on a
set of interagency working groups to place the recommendations in priority
order and identify key issues that require further study.
The working groups are also developing implementation agendas based on
both the NAPA Report and initiatives proposed by individual agencies. This
should ensure a thorough discussion and coordination of new policies at the
working level. The senior group's main role is to provide overall guidance
and make sure that the impact of personnel initiatives is understood and
addressed by senior management throughout the Community. Through this
process, we hope to ensure that personnel initiatives get the benefit of a
Community assessment before an individual agency submits them through normal
approval channels to the Oversight Committees for consideration.
In their reviews, the working groups are separating initiatives that
require new legislation from those that could be implemented under existing
authority. Our preliminary assessment is that in the near terM there will be
few requests for new legislation. The only legislative issue of immediate
concern is the request by the Federal Bureau of Investigation for exemption
from the position classification requirements of Title V, U.S.C. (one of
NAPA's key recommendations).
It is too early to state precisely what the legislative requirements of
other intelligence agencies may be. Many of NAPA's recommendations will
require extensive study and staff work before firm decisions can be made. In
addition, because intelligence agencies had been asked by the Committees to
delay new personnel policies until the NAPA Panel completed its study, these
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Honorable David L. Boren
agencies are only now assessing initiatives and re-evaluating prior proposals
in light of the NAPA Report. These circumstances make it highly unlikey that
a comprehensive set of legislative proposals based on the NAPA Report will be
forthcoming this fiscal year. At most, legislative action may be required
only for a few proposals that have had the benefit of prior study and/or are
in response to other legislative mandates. We will have a better idea of what
our legislative agenda will look like by mid-summer. The working groups will
then have had a chance to conclude their reviews and develop their work plans.
Much of the above also applies to initiatives that do not require
additional legislative authorities. Our initial review of possible personnel
programs in this category indicates that most of the proposals that are likely
to be submitted to the Congress this year are extensions or expansions of
existing programs (many of which have already been shared with the
Committees). For example, CIA has stated that it will propose an extension of
its Spousal Leave Transfer Program and an expansion of its Career Transition
program. CIA also proposes to begin the initial stages of a restructured,
mandatory health plan. Again, we will be in a better position to develop a
schedule of these and other proposals when the working groups have finished
their reviews.
I will forward a work plan that is less tentative than that described
above as soon as it is available. In the meantime, my point of contact for
this subject is at the Intelligence Community Staff.
He may be reached at and will be happy to answer any additional
questions you may have.
This same letter is being sent to the Vice Chairman, Select Committee on
Intelligence. A similar response is also being sent to the Chairman and
Ranking Minority Member of the House Permanent Select Committee on
Intelligence.
Sincerely yours,
William H. Webster
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
SUBJECT: Letter to The Honorable David L. Boren
DISTRIBUTION: (ICS 4228-89/1)
Copy 1 - Addressee
2 - DCI
3 - DDCI
4 - Executive Registry
5 - D/OCA
6 - C/LL/ICS
7 - D/ICS
8 - D/PPO
9 - PPO Subject
10 - PPO Chrono
11 - ICS Registry
DCl/ICS/PPO,
(3 April 1989) SI-AT
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Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Director of Central Intelligence
Washington, D.C. 20505
The Honorable William S. Cohen
Vice Chairman
Select Committee on Intelligence
United States Senate
Washington, D.C. 20510
Dear Mr. Vice Chairman:
14 April 1989
I was pleased to receive your letter asking for additional information on
the Community's plans to implement the National Academy of Public
Administration's (NAPA) Report on civilan personnel systems. I especially
appreciate the Committee's interest in helping us follow up on NAPA's
recommendations.
In your letter, you supported my proposal to establish a senior
coordinating group to steer Intelligence Community actions derived from the
NAPA Report. That group has already met to begin developing a realistic plan
to deal with the Report's recommendations. The senior group is drawing on a
set of interagency working groups to place the recommendations in priority
order and identify key issues that require further study.
The working groups are also developing implementation agendas based on
both the NAPA Report and initiatives proposed by individual agencies. This
should ensure a thorough discussion and coordination of new policies at the
working level. The senior group's main role is to provide overall guidance
and make sure that the impact of personnel initiatives is understood and
addressed by senior management throughout the Community. Through this
process, we hope to ensure that personnel initiatives get the benefit of a
Community assessment before an individual agency submits them through normal
approval channels to the Oversight Committees for consideration.
In their reviews, the working groups are separating initiatives that
require new legislation from those that could be implemented under existing
authority. Our preliminary assessment is that in the near term there will be
few requests for new legislation. The only legislative issue of immediate
concern is the request by the Federal Bureau of Investigation for exemption
from the position classification requirements of Title V, U.S.C. (one of
NAPA's key recommendations).
It is too early to state precisely what the legislative requirements of
other intelligence agencies may be. Many of NAPA's recommendations will
require extensive study and staff work before firm decisions can be made. In
addition, because intelligence agencies had been asked by the Committees to
delay new personnel policies until the NAPA Panel completed its study, these
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
STAT
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Honorable William S. Cohen
agencies are only now assessing initiatives and re-evaluating prior proposals
in light of the NAPA Report. These circumstances make it highly unlikey that
a comprehensive set of legislative proposals based on the NAPA Report will be
forthcoming this fiscal year. At most, legislative action may be required
only for a few proposals that have had the benefit of prior study and/or are
in response to other legislative mandates. We will have a better idea of what
our legislative agenda will look like by mid-summer. The working groups will
then have had a chance to conclude their reviews and develop their work plans.
Much of the above also applies to initiatives that do not require
additional legislative authorities. Our initial review of possible personnel
programs in this category indicates that most of the proposals that are likely
to be submitted to the Congress this year are extensions or expansions of
existing programs (many of which have already been shared with the
Committees). For example, CIA has stated that it will propose an extension of
its Spousal Leave Transfer Program and an expansion of its Career Transition
program. CIA also proposes to begin the initial stages of a restructured,
mandatory health plan. Again, we will be in a better position to develop a
schedule of these and other proposals when the working groups have finished
their reviews.
I will forward a work plan that is less tentative than that described
above as soon as it is available. In the meantime, my point of contact for
this subject is at the Intelligence Community Staff.
He may be reached at and will be happy to answer any additional
questions you may have.
This same letter is being sent to the Chairman, Select Committee on
Intelligence. A similar response is also being sent to the Chairman and
Ranking Minority Member of the House Permanent Select Committee on
Intelligence.
Sincerely yours,
William H. Webster
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
SUBJECT: Letter to The Honorable William S. Cohen
DISTRIBUTION: (ICS 4228-89/2)
Copy 1 - Addressee
2 - DCI
3 - DDCI
4 - Executive Registry
5 - D/OCA
6 - C/LL/ICS
7 - 0/ICS
8 - D/PPO
9 - PPO Subject
10 - PPO Chrono
11 - ICS Registry
DCl/ICS/PPO)
(3 April 1989) SI-AT
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Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Director of Central Intelligence
Washington, DC. 20505
14 April 1989
The Honorable Anthony C. Beilenson
Chairman
Permanent Select Committee on Intelligence
House of Representatives
Washington, D.C. 20515
Dear Mr. Chairman:
I received a letter from the Chairman and Vice Chairman of the Senate
Select Committee on Intelligence (SSCI) asking for additional information on
the Community's plans to implement the National Academy of Public
Administration's (NAPA) Report on civilan personnel systems. Since you
received a copy of that letter, I am sharing my response with you.
The SSCI letter supported my proposal to establish a senior coordinating
group to steer Intelligence Community actions derived from the NAPA Report.
That group has already met to begin developing a realistic plan to deal with
the Report's recommendations. The senior group is drawing on a set of
interagency working groups to place the recommendations in priority order and
identify key issues that require further study.
The working groups are also developing implementation agendas based on
both the NAPA Report and initiatives proposed by individual agencies. This
should ensure a thorough discussion and coordination of new policies at the
working level. The senior group's main role is to provide overall guidance
and make sure that the impact of personnel initiatives is understood and
addressed by senior management throughout the Community. Through this
process, we hope to ensure that personnel initiatives get the benefit of a
Community assessment before an individual agency submits them through normal
approval channels to the Oversight Committees for consideration.
In their reviews, the working groups are separating initiatives that
require new legislation from those that could be implemented under existing
authority. Our preliminary assessment is that in the near term there will be
few requests for new legislation. The only legislative issue of immediate
concern is the request by the Federal Bureau of Investigation for exemption
from the position classification requirements of Title V, U.S.C. (one of
NAPA's key recommendations).
It is too early to state precisely what the legislative requirements of
other intelligence agencies may be. Many of NAPA's recommendations will
require extensive study and staff work before firm decisions can be made. In
addition, because intelligence agencies had been asked by the Committees to
delay new personnel policies until the NAPA Panel completed its study, these
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
STAT
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Honorable Anthony C. Beilenson
agencies are only now assessing initiatives and re-evaluating prior proposals
in light of the NAPA Report. These circumstances make it highly unlikey that
a comprehensive set of legislative proposals based on the NAPA Report will be
forthcoming this fiscal year. At most, legislative action may be required
only for a few proposals that have had the benefit of prior study and/or are
in response to other legislative mandates. We will have a better idea of what
our legislative agenda will look like by mid-summer. The working groups will
then have had a chance to conclude their reviews and develop their work plans.
? Much of the above also applies to initiatives that do not require
additional legislative authorities. Our initial review of possible personnel
programs in this category indicates that most of the proposals that are likely
to be submitted to the Congress this year are extensions or expansions of
existing programs (many of which have already been shared with the
Committees). For example, CIA has stated that it will propose an extension of
its Spousal Leave Transfer Program and an expansion of its Career Transition
program. CIA also proposes to begin the initial stages of a restructured,
mandatory health plan. Again, we will be in a better position to develop a
schedule of these and other proposals when the working groups have finished
their reviews.
I will forward a work plan that is less tentative than that described
above as soon as it is available. In the meantime, my point of contact for
this subject is at the Intelligence Community Staff.
He may be reached at and will be happy to answer any additional
questions you may have.
This same letter is being sent to the Ranking Minority Member of the House
Permanent Select Committee on Intelligence. As noted, a similar response is
also being sent to the Chairman and Vice Chairman, Select Committee on
Intelligence.
Sincerely yours,
William H. Webster
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
SUBJECT: Letter to The Honorable Anthony C. Beilenson
DISTRIBUTION: (ICS 4228-89/3)
Copy 1 - Addressee
2 - DCI
3 - DDCI
4 - Executive Registry
5 - D/OCA
6 - C/LL/ICS
7 - D/ICS
8 - D/PPO
9 - PPO Subject
10 - PPO Chrono
11 - ICS Registry
DCl/ICS/PPO)
(3 April 1989) SI-AT
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Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
The Director of Central Intelligence
Washington, D.C. 20505
14 April 1989
The Honorable Henry J. Hyde
Ranking Minority Member
Permanent Select Committee on Intelligence
House of Representatives
Washington, D.C. 20515
Dear Mr. Hyde:
I received a letter from the Chairman and Vice Chairman of the Senate
Select Committee on Intelligence (SSCI) asking for additional information on
the Community's plans to implement the National Academy of Public
Administration's (NAPA) Report on civilan personnel systems. Since you
received a copy of that letter, I am sharing my response with you.
The SSCI letter supported my proposal to establish a senior coordinating
group to steer Intelligence Community actions derived from the NAPA Report.
That group has already met to begin developing a realistic plan to deal with
the Report's recommendations. The senior group is drawing on a set of
interagency working groups to place the recommendations in priority order and
identify key issues that require further study.
The working groups are also developing implementation agendas based on
both the NAPA Report and initiatives proposed by individual agencies. This
should ensure a thorough discussion and coordination of new policies at the
working level. The senior group's main role is to provide overall guidance
and make sure that the impact of personnel initiatives is understood and
addressed by senior management throughout the Community. Through this
process, we hope to ensure that personnel initiatives get the benefit of a
Community assessment before an individual agency submits them through normal
approval channels to the Oversight Committees for consideration.
In their reviews, the working groups are separating initiatives that
require new legislation from those that could be implemented under existing
authority. Our preliminary assessment is that in the near term there will be
few requests for new legislation. The only legislative issue of immediate
concern is the request by the Federal Bureau of Investigation for exemption
from the position classification requirements of Title V, U.S.C. (one of
NAPA's key recommendations).
It is too early to state precisely what the legislative requirements of
other intelligence agencies may be. Many of NAPA's recommendations will
require extensive study and staff work before firm decisions can be made. In
addition, because intelligence agencies had been asked by the Committees to
delay new personnel policies until the NAPA Panel completed its study, these
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Mr. Henry J. Hyde
agencies are only now assessing initiatives and re-evaluating prior proposals
in light of the NAPA Report. These circumstances make it highly unlikey that
a comprehensive set of legislative proposals based on the NAPA Report will be
forthcoming this fiscal year. At most, legislative action may be required
only for a few proposals that have had the benefit of prior study and/or are
in response to other legislative mandates. We will have a better idea of what
our legislative agenda will look like by mid-summer. The working groups will
then have had a chance to conclude their reviews and develop their work plans.
Much of the above also applies to initiatives that do not require
additional legislative authorities. Our initial review of possible personnel
programs in this category indicates that most of the proposals that are likely
to be submitted to the Congress this year are extensions or expansions of
existing programs (many of which have already been shared with the
Committees). For example, CIA has stated that it will propose an extension of
its Spousal Leave Transfer Program and an expansion of its Career Transition
program. CIA also proposes to begin the initial stages of a restructured,
mandatory health plan. Again, we will be in a better position to develop a
schedule of these and other proposals when the working groups have finished
their reviews.
I will forward a work plan that is less tentative than that described
above as soon as it is available. In the meantime, my point of contact for
this subject is at the Intelligence Community Staff.
He may be reached at and will be happy to answer any additional
questions you may have.
This same letter is being sent to the Chairman of the House Permanent
Select Committee on Intelligence. As noted, a similar response is also being
sent to the Chairman and Vice Chairman, Select Committee on Intelligence.
Sincerely yours,
William H. Webster
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
SUBJECT: Letter to Mr. Henry H. Hyde
DISTRIBUTION: (ICS 4228-89/4)
Copy 1 - Addressee
2 - DCI
3 - DDCI
4 - Executive Registry
5 - D/OCA
6 - C/LL/ICS
7 - D/ICS
8 - D/PPO
9 - PPO Subject
10 - PPO Chrono
11 - ICS Registry
DCl/ICS/PPO/
(3 April 1989) SI-AT
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part - Sanitized Copy Approved for ReleaseSTAT
2013/11/20: CIA-RDP91B01306R001500010001-4_y V.-
11.4.?11.11.4. ? .????? ? ? ,e? ? a?-?
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DATE
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prepared- for -150 ,, ?
/ Executive Secretary
? STAT Doss
Declassified in Part - Sanitized Copy Approved for Release
,2013/11/20 : CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
?
DAVID L BOREN, OKLAHOMA CHAIRMAN
WILLIAM S. COHEN, MAINE, VICE CHAIRMAN
SAM NUNN, GEORGIA
ERNEST F. HOLUNGS, SOUTH CAROLINA
BILL BRADLEY, NEW JERSEY
ALAN CRANSTON, CALIFORNIA
DENNIS DECONCINI, ARIZONA
HOWARD M. METZENBAUM, OHIO
JOHN H GLENN, JR., OHIO
ORRIN HATCH, UTAH
FRANK MURKOWSKI, ALASKA
ARLEN SPECTER, PENNSYLVANIA
JOHN WARNER, VIRGINIA
ALFONSE M. ?AMATO, NEW YORK
JOHN C. DANFORTH, MISSOURI
GEORGE MITCHELL MAINE. EX OFFICIO
ROBERT DOLE. KANSAS, EX OFFICIO
GEORGE J. TENET. STAFF DIRECTOR
JAMES H. DYKSTRA. MINORITY STAFF DIRECTOR
L BRITT SNIDER, GENERAL COUNSEL
KATHLEEN P. MeGHEE, CHIEF CLERK
ER 89-A31
United tatts nate
SELECT COMMITTEE ON INTEWGENCE
WASHINGTON, DC 20610-6475
The Honorable William H. Webster
Director of Central Intelligence
Central Intelligence Agency
Washington, D.C. 20505
Dear Judge Webster:
March 15, 1989
#89-0992
w/#89-0258
We have received your letter of 18 January 1989,
t ran smi tting th-e-recent--1-y-pub-1-i-sh-ed-rep-o-rt-entit-1-e-d-Th-e
cI-n-tea-1-i-gence-Wor-k-f-o-rt e-o-f -t-h-e=1-99?0-s-r?A=Re v:i7ew -o?---Pie:rs on n e 1

Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
SUBJECT: Preliminary Draft of the National Academy of Public
Administration (NAPA) Interim Report
Distribution:
Original - Addressee
1 - Executive Registry
2 - DDA
1 - D/OCA
1 - Comptroller
1 - D/OP
2 - DD/CAP
CAP/OPi
8 July 1988
2
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Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
R
Next 29 Page(s) In Document Denied
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STAT
IH ?
Declassified in Part - Sanitized Copy Approved for Release 2013/11/20:
CIA-RDP91B01306R001500010001-4
? Attached for your signature are
letters to Chairman Boren and Chairman
Stokes that trAnsmit the first interim
report on the:personnel .study.of the
Intelligence Community produced by the
National Academy of Public Administration
(NAPA). The fiscal 88 Intelligence
Authorization Act calls for an interim
report on thise5t1Tdy=to?be?deIdivelled?
4t-o?Comgre-s-sn??=May7,-
S TAT
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CIA-RDP91B01306R001500010001-4
Declassified in Part- Sanitized Copy Approved for Release 2013/11/20: CIA-RDP91B01306R001500010001-4
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STAT
( /
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0,.._
ICS 4236-88
26 April 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: First Interim Report--National Academy of Public
Administration (NAPA) Study of Civilian Personnel Systems
1. Attached for your signature are letters to Senator Boren and
Representative Stokes forwarding NAPA's first Interim Report on the civilian
personnel study it is conducting in accordance with the Fiscal Year 1988
Intelligence Authorization Act. A copy of the Report is also attached. The
Conference Report on the Act calls for interim reports on 1 May 1988 and
1 August 1988 and a final report on 20 January 1989.
2. In January, I formed a group of senior Community managers to approve
the study's Terms of Reference and provide overall policy guidance to the
effort. The members of that group met in a half-day session with the NAPA
study panel earlier this month to exchange views and describe the personnel
concerns of the participating agencies. Day-to-day guidance for the study has
been provided by a steering group drawn from the Community and chaired by my
Director of Planning and Policy, That group has worked
closely with the NAPA team since the beginning of the year to get the effort
off the ground and build a baseline understanding of the personnel systems
being studied. As the Conference Report requires, the steering group also
consulted Congressional staff while developing the study's Terms of Reference.
3. The Interim Report essentially describes NAPA's progress thus far,
which has mainly consisted of organizational work, the acquisition of a
comprehensive understanding of the various personnel systems, and the
identification of specific issues that will receive close scrutiny in the
coming months. There is little in the Report in the way of substantive detail
or judgments that could lead to controversy. In response to Congressional
interest in early identification of specific issues that might affect
legislation in the near term, the NAPA panel does note that it expects to
provide a report on CIA's concept of a flexible benefits program as quickly as
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,
SUBJECT: First Interim Report--National Academy of Public Administration
(NAPA) Study Civilian Personnel Systems
possible, and that it may also address certain NSA pay proposals in a separate
report. The Report also offers some early observations on staffing patterns,
variations in pay and benefits, and the relationship between the "uniqueness"
of intelligence work and the need for flexibility. More detailed work in
these areas will be conducted.
4. The Report is due to the Congress on I May. Following your review and
signature of the forwarding letters, I shall attach the original Report and
arrange delivery to the Senate Select Committee on Intelligence and the House
Permanent Select Committee on Intelligence.
Lieutenant General
Attachments:
A. Letters for Signature
B. NAPA Interim Report
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,
SUBJECT: First Interim Report--National Academy of Public Administration
(NAPA) Study of Civilian Personnel Systems
DISTRIBUTION:
ICS 4236-88 w/atts
Orig - DCI
1 - DDCI (ER File)
1 - D/ICS-DD/ICS-DD&RE/ICS
1 - OCA/CIA
1 - LL/ICS
1 - D/PPO
1 - PPO Subject
1 - PPO Chrono
1 - ICS Registry
DCl/ICS/PPOI
ICS 4236-88/1
Orig - Addressee
1 - DCI
1 - DDCI (ERFile
1 - D/ICS
1 - OCA/CIA
1 - LL/ICS
1 - D/PPO
1 - PPO Subject
1 - PPO Chrono
1 - ICS Registry
(25 April 1988)
ICS 4236-88/2
Orig - Addressee
1 - D/OCA
1 - LL/ICS
1 - PPO Subject
1 - ICS Registry
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The Director of Central Intelligence
washifismoc.20505
29 April 1988
The Honorable Louis Stokes, Chairman
Permanent Select Committee on Intelligence
U. S. House of Representatives
Washington, D.C. 20515
Dear Mr. Chairman:
Attached for your information is the 1 May 1988 Interim Report from the
National Academy of Public Administration (NAPA), which is conducting a study
of the Intelligence Community's civilian personnel management and compensation
systems. The study has been undertaken to meet a requirement expressed in the
Fiscal Year 1988 Intelligence Authorization Act. In accordance with the
Conference Report accompanying the Act, a second interim report will be
transmitted to you on 1 August 1988 and a final report on 20 January 1989.
The Interim Report describes NAPA's progress thus far. To date, much of
the effort has consisted of organizational work, the establishment of a
baseline understanding of the intelligence personnel systems being studied,
and the identification of specific issues that will receive close scrutiny in
the coming months. An Intelligence Community steering group has worked
closely with the NAPA study staff over the last few months to provide
assistance and information, and senior Community managers have furnished
guidance on personnel policy issues. I am confident that the NAPA team has
acquired a good understanding of the Community and is moving to address the
problems that concern us.
A copy of this Report is also being forwarded to the Chairman, Senate
Select Committee on Intelligence.
Sincerely yours,
(AAA,
William H. Webster
Enclosure:
NAPA Interim Report
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4-
The Director of Central Intelligence
WashinumaC20505
29 April 1988
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 May 1988 Interim Report from the
National Academy of Public Administration (NAPA), which is conducting a study
of the Intelligence Community's civilian personnel management and compensation
systems. The study has been undertaken to meet a requirement expressed in the
Fiscal Year 1988 Intelligence Authorization Act. In accordance with the
Conference Report accompanying the Act, a second interim report will be
transmitted to you on 1 August 1988 and a final report on 20 January 1989.
The Interim Report describes NAPA's progress thus far. To date, much of
the effort has consisted of organizational work, the establishment of a
baseline understanding of the intelligence personnel systems being studied,
and the identification of specific issues that will receive close scrutiny in
the coming months. An Intelligence Community steering group has worked
closely with the NAPA study staff over the last few months to provide
assistance and information, and senior Community managers have furnished
guidance on personnel policy issues. I am confident that the NAPA team has
acquired a good understanding of the Community and is moving to address the
problems that concern us.
A copy of this Report is also being forwarded to the Chairman, House
Permanent Select Committee on Intelligence.
Sincerely yours,
William H. Webster
Enclosure:
NAPA Interim Report
25X1
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/NAPA
1/National Academy of Public Administration
Chartered by Congress
April 21, 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,
I am pleased on behalf of the National Academy of Public
Administration's Panel for the study of the Intelligence
Personnel Systems to transmit the May 1st interim report as
requested by the Congress in the Conference Report for the FY88
Intelligence Authorization Act. A copy of this document is being
sent to the Honorable David L. Boren, Chairman, Senate Select
Committee on Intelligence.
Sincerely,
(
z.3".??????"."
A. Odeen
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xASTAPA
National Academy of Public Administration
Chartered by Congress
1/
April 21, 1988
The Honorable David L. Boren
Chairman, Senate Select Committee on Intelligence
SH-211 Hart Senate Office Building
Washington, DC 20510
Through: Judge William H. Webster
Director of Central Intelligence
Dear Chairman Boren,
I am pleased on behalf of the National Academy of Public
Administration's Panel for the study of the Intelligence
Personnel Systems to transmit the May 1st interim report as
requested by the Congress in the Conference Report for the FY88
Intelligence Authorization Act. A copy of this document is being
sent to the Honorable Louis Stokes, Chairman, House Permanent
Select Committee on Intelligence.
Sincerely,
Philip A. Odeen
11200 Street, N.W., Suite 540 Washington, D.C. 20005 [phone]
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ASTAPA
1/ National Academy of Public Administration
Chartered by Congress
INTERIM REPORT
OF THE NATIONAL ACADEMY OF PUBLIC ADMINISTRATION PANEL
FOR THE
STUDY OF INTELLIGENCE PERSONNEL SYSTEMS
MAY 1 1988
^ 1120 G Street, N.W., Suite 540 Washington, D.C. 20005 [phone]
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INTERIM REPORT
STUDY OF THE INTELLIGENCE PERSONNEL SYSTEMS
Organizational Status
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 management and
compensation systems of the IntelligenceCommunity (IC). The
Academy has convened a Panel of public and private sector
officials (Attachment A), some of whom have held seni r
intelligence posts, to assess the current situation and
recommend any legislative or regulatory changes deemed needed
to improve the eftectiveness of IC personnel systems.
The Panel is assisted by a project staff which develops
options and recommendations for the Panel's review. The staff
is composed of former intelligence agency employees, experts in
federal human resource management issues and experienced
analysts. The combination of diversity and experience will
permit critical analysis within a knowledgeable environment.
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As specified in Section 701(e), the Director of the
Intelligence Community Staff has provided the requested support
and access to necessary information. Panel members and project
staff have been provided security clearances. Secured office
space was provided. To facilitate access and coordination, the
Intelligence Community staff established a Study Steering Group
of senior representatives of the personnel functions from each
intelligence organization and this group has been meeting every
week to facilitate the work of the project.
The contract for the study was signed February 17,
1988. Pertinent background papers leading to the contract
are: a) the Terms of Reference generated by the Intelligence
Community, dated January 19, 1988; and b) the National Academy
of Public Administration's proposal, dated February 12, 1988.
-Both are included under Attachment B.
Agency Initiatives
One of the objectives of the two interim reports -- this
one and the one on August 1, 1988 -- is for the Panel to
address proposed changes to personnel management and
compensation systems that intelligence organizations believe
are important to implement before the overall study is
completed.
2
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All of ?the agencies were asked if they had proposals
they wanted the Panel to evaluate in this context. ,The Central
Intelligence Agency (CIA) identified the concept of a flexible
benefits program as a change they would like the Panel to
address. Under it, staff will have more flexibility to select
benefits, paying for them with the government's contribution
supplemented by employee contributions. A report on this
initiative, with Panel recommendations, will be provided as
soon as the analysis and Panel review can be completed.
It is possible the Panel may examine and make
recommendations on NSA's proposals for a flexibile pay system
and for a bonus program before the Panel's January 1989 report.
The CIA has a number of other changes that they want to
undertake which they believe are not significant and do not
have Community-wide implications. The project staff has been
briefed on them and will discuss them with the staffs of the
Senate and House Intelligence Committees and the Panel Chair
before advising CIA whether or not to proceed.
Development of the Baseline Comparison
Prior to beginning detailed field work, the project
staff requested comparable personnel-related data from each
agency. The information was organized as'follows:
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Organization of Agency
Legal Basis for Agency Personnel Programs
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
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.
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After analyzing the 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
Intelligence Committees of the Congress.
Using this information, the NAPA Panel held its first
meeting on 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 agencies. 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.
Early Observations
The IC personnel systems range from close adherence to
Title 5 of the U.S. Code, relating to personnel and overseen by
the Office of Personnel Management, to more flexible systems
such as those of CIA and DIA. A major difference between
staffs of intelligence agencies and those of other government
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entities is the security requirements: the ensuing lifestyle
limitations while employed and the constraints placed on
employees once they leave employment with an intelligence
organization._ This is often cited as the major reason IC
agencies believe their staffs should be compensated
differently than other civil servants.
There is an increasing demand by executive branch
agencies for greater flexibility in managing their human
resources. The climate for change in federal personnel
management has contributed and will continue to contribute to
the intelligence agencies having more flexible systems. The
Office of Personnel Management, through delegation and
deregulation, and the Congress, through specific demonstration
authorities, like those recently given the National Bureau of
Standards, are responding to these demands. These are largely
driven by the mission requirements of these agencies.
Central to this study will be the Panel's assessment of
the "uniqueness" of the missions of the intelligence agencies
and the implied need for even greater flexibility to support
them. To some extent, this flexibility justification is
already reflected in authorities granted to the various
intelligence agencies. However, these authorities need to be
assessed in terms of the consistency of their application among
intelligence agencies and between the intelligence agencies and
the rest of government.
-6
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In examining staffing patterns and vacancy rates
available to date, the Panel does not 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.
-7
TAT
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Issues to be Analyzed
The Panel will examine the issues outlined below in the
context of the existing missions of the IC agencies. The
Panel's will consider the strategic trends in the intelligence
function and the economic, social and demographic trends in
U.S. society. However, given the uncertainty in projecting
future missions, emphasis will be on suggesting changes that
would permit agencies to design systems sufficiently flexible
to meet a wide range of operating circumstances and changing
needs.
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:
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.
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There will be several lines of inquiry for each area:
1. Total Compensation
--Two aspects on pay: the impact of the pay cap
and the need for increased agency flexibility in the use of the
pay system within cap limits.
--Two aspects on benefits: to what degree the
nature of intelligence work justifies benefits enhancement and
to what degree the intelligence agencies need increased
flexibility in using benefits to better meet the needs of a
changing workforce.
--Compensation and benefits comparability for
staff in overseas assignments, including a comparison with the
Foreign Service,
--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.
--Comparative data on the costs of federal staff
as compared to contract staff.
9
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--The dual compensation provision for retired
military officers as an impediment to recruitment for positions
that require specialized Military intelligence experience.
2. Career Development and Training
--Career development programs: how they support
current and projected staffing and skill needs of the agencies.
--Training and retraining programs in the agencies
and how they are linked to improving job performance and
meeting current and future skill needs.
--Adequacy of resources for training and career
development programs.
--Use of workforce and succession planning
programs to define and guide staffing, training and career
development program needs of the agencies.
3. Staffing
--Current and projected skill shortage and
retention problems which threaten accomplishment of agency
missions.
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--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.
--Projections of agency staffing needs from the
current staff base. The impact of congressional personnel
authorizations for the IC agencies and the effect of
congressional action on pay and benefits will be assessed.
--Possible means of evaluating the quality of new
staff being employed and retained now and in the future.
4. Equal Employment Opportunity
--Analysis of each agency's equal employment
profile.
--What each agency is doing to enhance the
representation of female and minority staff in the organization.
5. Organizational Issues
--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.
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The Panel also considered examining the potential impact
of wartime 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
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 its size and the fact that it is so integrated
into the regular Foreign Service and civil service personnel
systems of that large Department.
Schedule for Studies
The Panel's work is organized to reflect the interim and
final reporting dates specified in the Authorization Act.
Between May 1 and August 1, the Panel will review issues
associated with staffing equal employment opportunity, career
development and training, and will complete a baseline compari-
son of the agencies' personnel systems. The August 1 report
will have findings and tentative recommendations in these areas.
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By early October 1988, the Panel expects to complete its
work on 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
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.
Attachment A: Panel Biographies
Attachment B: Terms of Reference and NAPA Proposal
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