THE SUPPORT SERVICES HISTORICAL SERIES PERSONNEL RECORDS -AND REPORTS: CONTROL DIVISION, OFFICE OF PERSONNEL 1947-1971

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00708R000200120001-4
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 126
• Document Creation Date: November 16, 2016
• Document Release Date: March 1, 2000
• Sequence Number: 1
• Publication Date: August 1, 1972
• Content Type: REPORT

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Secret
CIA Internal Use Only
Access Controlled by DDS
CIA HISTORICAL STAFF
The Support Services
Historical Series
PERSONNEL RECORDS AND REPORTS:
CONTROL DIVISION, OFFICE OF PERSONNEL
1947-1971
Secret
OP-11
August 1972
Copy 2 of 3
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WARNING
This document contains information affecting the national
defense of the United States, within the meaning of Title
18, sections 793 and 794, of the US Code, as amended.
Its transmission or revelation of its contents to or re-
ceipt by an unauthorized person is prohibited by law.
Exempt from general
declassification schedule of E.O. 11652
exemption category 5B(1), (2), (3), (4)
classified by signer
declassified only on approval of
the Director of Central Intelligence
WARNING NOTICE
SENSITIVE INTELLIGENCE SOURCES
AND METHODS INVOLVED
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CIA Internal Use ont,y
Access Controlled by DDS
THE SUPPORT SERVICES HISTORICAL SERIES
OP-11
PERSONNEL RECORDS AND REPORTS:
CONTROL DIVISION, OFFICE OF PERSONNEL
1947-1971
25X1A
by
August 1972
25X1A
Harry . Fisher
Director of Personnel
HISTORICAL STAFF
CENTRAL INTELLIGENCE AGENCY
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Foreword
The Agency's responsibilities for personnel records are
set forth in that portion of Headquarters Regulation
Records and Reports, relating to the responsibilities of the
Director of Personnel:
The Director of Personnel is responsible for the
establishment, maintenance, and control of official
personnel records, for monitoring the release of
personnel information, and for the preparation and
distribution of personnel statistical reports.
What the Agency has done -- and how it has been done -- from
18 September 1947 to February 1971 will be discussed in this
history. The focus will be on records of personnel transac-
tions, personnel statistics, and personnel qualifications; no
attention will be devoted to records generated by substantive
programs such as Insurance, Credit Union, Contract Employment,
or Hospitalization.
The responsibilities of concern to this history have been
carried out by the Control Division since a reorganization of
the Office of Personnel in 1967. It was very logical that
because of their interdependence and interrelationship the three
activities in question be combined into a single Division. A
general observation on all three ;of these functions over the
period of this history is that they became increasingly
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sophisticated; and although there is interdependence and
interrelationship among these three record systems, from a
functional and historical standpoint they are discrete activ-
ities. Considerable effort is being expended in the Offices
of Personnel and Computer Services to continue this trend
through the utilization of the latest developments in automatic
data processing.
The Transactions and Records activity has been headed by
two professional employees, with experienced first-line super-
visors directing clerical employees in maintaining the position
inventory, the Official Personnel Folders, and the computer
input.
The Qualifications Inventory has been established and
maintained in a variety of ways, always under the direction of
a professional employee. At one stage, a task force of junior
professional personnel performed the coding; at another, place-
ment officers; and for the past six years to the present (1971)
reemployed annuitants who formerly were professional employees
with a wide variety of work experience. Biographic profiles
have always been prepared by experienced senior clerical
personnel.
Personnel Statistical Reporting has always had profes-
sional employees supervising clerical personnel. Over the
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years it, along with other activities in the records field,
has been a training ground for staffing personnel activities
throughout the Agency.
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Contents Page
Foreword. iii
I.
Transactions and Records Branch
1
A.
Introduction
1
B.
Position Control Section
4
C.
Status Section
12
D.
Files Section
15
E.
Fitness Report Control
24
II.
Statistical Reporting Branch
26
A.
Introduction
26
B.
Background in Early Personnel Reporting
28
C.
IBM Multiple Card System. . .
42
D.
Publication of the Monthly Personnel Statistical
Review
45
E.
The FlexowTiter -- Introduction to ADP
48
F.
Significant Reporting Requirements
55
III.
Qualifications Analysis Branch
66
A.
Introduction
66
B.
Mission
68
C.
The 1947 Qualifications Coding System
70
D.
The 1952 Qualifications .Coding System
73
E.
The 1956 Revision
83
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F. The Biographic Profile 89
G. The RCA 501 Qualifications Record System 96
Illustrations
Figure 1. Staff Employee Career Designations, 31 August
1953
Figure 2. Strength Input Form Used in Initial Conversion
34.
to RCA 501 System, January 1961 50
Figure 3. Record of Overseas Service, Form 1451 57
?
A.
Appendixes
Statistical Reporting Branch Chronology
September 1947 - February 1971
110
B.
Statistical Reporting Branch Glossary of
Abbreviations
114
C.
Source References
115
Attachments*
A.
The Transactions and Records Activity within the
Office of Personnel Structure. S.
119
11111i
B.
Example of Early Position Control Register. S. ? ?
?
121
C.
Contents of Official Personnel Folder and Instructions
for Filing Material in Folder (Revised May 1970) S.
.
123
D.
Retirement of Official Personnel Folders. S. . . .
.
125
E.
Records Storage Reduction Program. S.
127
F.
Example of Use of Service Record Card in Receipting
of Fitness Reports. S
136
* Published separately.
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Contents Page
G. T/O Change Authorization for the Personnel Office,
Control No. 478, 29 May 1954. S. 138
H. CIA Personnel Report, 17 September 1947. S 141
I. CIG Personnel Report, 7 March 1947. S. 145
J. Personnel dated 20 May 1953;
Sub: Career Service Board Determination of Initial
Career Designations; from Walter Reid Wolf, Deputy
Director (Administration). C 149
K. Personnel Status Report, 30 November 1947. S 154
Exec. Personnel - Monthly Accessions and Separa-
tions, January 1948 - August 1949. S.
Executive - Personnel Office, Analysis of Promotions
Processed by Classification Division, February
1949 - August 1949. S.
Executive - Personnel Office - Disposition of Security
Clearances, July 1948 - August 1949. S.
Admin Staff - Personnel Division, Analysis of Exit
Interviews, Percentage of Total CIA Personnel
Promoted and Number of Security Clearances of
Applicants Received by Personnel Division,
January 1949 - June 1950. S.
Awl
L.
Personnel Strength Report, 11 May 1951. S.
159
Project Strength Report, 11 May 1951. S.
163
M.
Multiple Layout Form 1955. S
165
N.
Three commendation memos to
6 February 1953, 7 August 1953, and 30 April
1954. U., R., S.
171
O.
Information contained in the IBM Personnel Status
File No. 1, 1955 and earlier. U
174
Sample copy of a Notification of Personnel Action
Form 50, reflecting data that was coded. S
177
MRD Country-City Code Listing (Partial). C
178
MN
Memo dated 30 March 1953 for C/MRD, Sub: Project
Codes. S
179
List of Project Codes. S
180
wad
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Contents
P. Monthly Personnel Statistical Review, 31 Janu-
ary 1953. S
Page
182
Memo for C/RSD, 16 March 1956, Sub: Review of Content
of MPSR's. C 184
Memo for Record, 29 March 1956, Sub: Interim Report
on MPSR Survey. S 185
R. Sample copies of report forms which are completed by
the computer:
(L) Pay Change Notification, Form 560. S 186
(2) Personnel Status Report, Form 1748A. S.
(3) Notification of Personnel Action, Form 11503. S.
()-i-) Report of Separations, Form 9713. S.
(5) Agency Strength Formats, Form 1912. S.
(6) Position Control Register, Form 1747A. S.
S. Computer and SIB Produced Reports Handled by SRB,
22 September 1970. S. 192
T. Biographic Profile (Form 1200). S 195
U. Sterile Narrative Biographic Profile. U 198
V. Memorandum from Personnel Director to all CIA Personnel;
Sub: Personnel Qualification Questionnaire. S. . . 199
W. Memorandum for the Record dated 10 June 1955; Sub:
Survey Qualifications Analysis Branch, Personnel
Assignment Division. By S. 207 .
X. Chart, "Applicants Coded (Jan 1952 - Sep 196)-i.)." S. 219
Y. Form No. 444c, "Language Data Record," dated 1 Febru-
ary 1957, and Instruction Sheet therefor (blank
copy). S. when filled in 220
Form No. 444c, "Certification of Claimed Language
Proficiency," dated April 1966 (blank copy). S. when
filled in 222
Z. CIA. Personnel Notice No. 20-800-2 dated 4 February
1957; Sub: "The Biographic Profile." From L. K.
White, Deputy Director (Support). C 223
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Contents Page
AA;
Report prepared by OP/POD/QAB as of 31 December
1962 for DCI re Professionalism in the Agency.
(Grades GS-13 through GS-18.) S
227
BB.
RCA 501 System -- Instruction Pamphlet, "Introduction
to Coding Manual." Prepared by
25X1A
and dated 22 October 1964. U
233
CC.
Tabulation, DDI Language Statistics. S
245
DD.
Article, "Education and the Central Intelligence
Agency." Written Later published
as a part of a Department of Health, Education and
25X1A
Welfare publication. U
246
BE.
Biographic Profile (Form 1200) on
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262
FF.
Form 444j, "Qualifications Supplement to Personal
History Statement." (Blank Copy.) S. when filled
in
264
GG.
Form 444n, "Qualifications Update." (Blank Copy.)
S. when filled in
271
HH.
Personnel Job No. 236-B, "Qualification Source Re-
gister." One page thereof. As of 8 March 1969.
(SP, SF, and R Test Run.) S
273
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Personnel Records and Reports:
Control Division, Office of Personnel
1947-1971
I. Transactions and Records Branch*
A. Introduction
There is a legal requirement that the Central Intelligence
Agency maintain records of transactions on all employees
promotions, reassignments, transfers, leave without pay, and
change of Career Designation./** This record is called the
Position Inventory and it appears on a Standard Form 7, "Service
Record Card." Before the establishment of a machine-produced
Position Control Register (Table of Organization) in 1954, the
Position Inventory, which was manually posted to Standard Form 7,
was photographed quarterly and distributed to offices and to
vital records. As a part of the overall trend toward the further
automation of personnel records, consideration is being given
(1971) to computerizing the Position Inventory.
A sister activity to the Position Inventory is the Status
function, establishing in official records the status or rela-
tionship of the employee to the Agency. The principal duty of
25X1A was the principal author of this section.
** For serially numbered source references, see Appendix C.
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the Status unit is the typing and distribution of Form 1150,
"Notification of Personnel Action." In the early days this was
done on the typewriter with no byproducts. Progression was
made to the punching of an IBM card for machine input and later,
simultaneously with the cutting of the action on a Flexowriter,
a perforated tape was cut, which was used to punch IBM cards;
and now (1971) the tape is used for direct computer input. Now
under consideration as a part of the development of an integrated
Support Directorate information system, is the use of the latest
input devices, including optical scanning.
The establishment and maintenance of the Official Personnel
Folder has undergone little change during the period of this
history. The file is basically maintained in accordance with
instructions of the Civil Service Commission. Under these gen-
eral instructions the Agency organized the file in a manner
considered most suitable for its own use. Unlike most of the
Federal Government, which uses the Federal Records Center in
St. Louis, Missouri, for the storage of the Official Personnel
Folder of separated and retired employees the Agency maintains
its own record storage. This necessitates that the Agency reply
to inquiries related to these records. The Official Personnel
Folder of a separated or retired employee must be held for 75
years after the birth of the employee or, if the date of birth
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cannot be ascertained 60 years after the date of the earliest
document in the folder provided employee has been separated or
retired for at least five years./
From the Agency's establishment in 1947 through mid-1949,
personnel records for all employees paid from vouchered funds
were maintained by the Transactions and Records (T&R) activity
of the Office of Personnel. Records for overt overseas employees
paid from unvouchered funds were also the responsibility of T&R.
Transactions and Records maintained the Official Personnel
Folders, was responsible for the position inventory functions
of editing requests for personnel actions, for posting and main-
taining service records, for responding to credit inquiries,
for preparing strength reports, and for controlling periodic
step increases and entrance-on-duty (ROD) processing. It was
also responsible for control of Fitness Reports.
Similar records support for covert personnel paid from
unvouchered funds was provided by the personnel division of the
clandestine offices and coordinated through the Director of
Personnel. In 1949 the Personnel Overt and Personnel Covert
Branches were established under the Transactions and Records
Division of the Office of Personnel. Records responsibility
was divided, and a separate and complete T&R activity supported
each branch. Under this new organization the payrolling activ-
ities were also divided. The Fiscal Division was responsible
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for those paid by vouchered funds, which included most employees
whose personnel records were handled by the Personnel Overt
Branch, The Finance Division paid employees on unvouchered
funds, which included all employees whose records were main-
tained by the Personnel Covert Branch and some whose records
were maintained by the Personnel Overt Branch.
The organizational change in the Office of Personnel for-
malized the system that had been carried over from predecessor
Agencies. In Decembei 1950 the Personnel Overt and Personnel
Covert Branches became Divisions; and in November 1953 the two
were merged into the Processing and Records Division, and the
Transactions and Records Branch was a part of this new organi-
zation. Since that time there has been one Transactions and
Records Branch (TRE) in the Agency./ Changes in organizational
location and in the strength of the Transactions and Records
Branch from 1949 to the present are shown in Attachment A.
B. Position Control Section
The Position Control function has always been the respon-
sibility of the Transactions and Records Branch. Position
Inventory (PI) clerks edited personnel action requests
accuracy, proper approvals, and timeliness of receipt.
about 1952, when a Division wished to have a personnel
for
Until
action
processed it was necessary to write a memo outlining the action
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requested; and the PI clerks were responsible for typing the
action and getting the proper signatures of approval. Since
then, and continuing until the present time (1971), the Divi-
sions forward a Form 1152, Request for Personnel Action, to
initiate personnel changes. In the early 1950s there were
fewer of the tight restrictions of later periods in such areas
as headroom, time-in-grade for promotions, and personal rank
assignment slotting.
The regulations governing Agency procedures in the late
1940's were known as Confidential Funds (CF) Regulations.
These derived from the old Office of Strategic Services regu-
lations governing areas such as travel, finance, logistics,
and personnel. At that time, the Assistant Director for Special
Operations (ADS0), the incumbent of the position equivalent to
today's Deputy Director for Plans, required all requests for
personnel action within his jurisdiction to be approved by his
representative. Today the placement officers of the Profes-
sional Placement Branch have authority to approve most requests
for transactions. The Director of Personnel approves supergrade
actions and some other special requests such as leave without
pay extensions beyond one year.
After final approval of requests and preparation of the
personnel action, postings were made by hand to the Service
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Record Cards (Standard Form 7) of Agency employees. This
hand-posting system continues to the present day and will be
used at least until the final recommendations of the Systems
Support Staff for the new integrated Support System are imple-
mented. Actions affecting a component's strength required an
additional posting to a 5" by 8" card, which was maintained for
each component and physically located after the last Service
Record Card for each major organizational element. Strength
reports were prepared from these postings, both on request and
on a scheduled basis; and this practice continued until November
1953 when strength reports as they are known today became
available.
Usually on a weekly basis a representative of the Comp-
troller's Office would visit each office and ascertain the cur-
rent on-duty strength for an eventual comparison with the PI
figures. Three factors that hindered accurate reporting were:
(1) there was some hiring by certain Division and Project chiefs
that was independent of processing through the Office of Personnel,
(2) there were no records for contract employees in the Office
of Personnel, and (3) transfer-of-funds transactions were handled
as a separation and a new Entry on Duty (EOD) -- similar to, but
evidently without the refinements of, today's Staff Agent con-
versions. Although the EOD would be in the "new name," the
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serial number would also be different so that it would appear
to be a legitimate new E0D.2/
During the late 1940's and early 1950's each division,
in effect, maintained its own Position Inventory records; indi-
vidual records were maintained on the form OF 4-B. Most offices
discontinued this practice when the Tables of Organization came
into being in March 1954.
Until 1953 the Service Record Cards were removed from
the PI on a quarterly basis, and photographs were taken for
the twofold purpose of maintaining
? and distributing the forerunner to
Register (Table of Organization).
The Position Control Section
information -- for
copies of vital records
today's Position Control
(See Attachment B.)
was informed of position
example, the addition of new positions,
changes in position grades, and position deletions by that
Office of Personnel component responsible for position evalu-
ation. Upon notification, changes were made -- either by hand
or by typewriter -- on the position information header strip
of the Kardex files. (These files contained the position
information on the Service Record cards.) This procedure is
still in use (1971) and takes place upon the receipt of Form 261,
'Authorization for Staffing Change," from the Position Management
and Classification Division. A copy is also sent to the Office
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of Computer Services so that Agency machine records are simul-
taneously changed. The physical makeup of the PI clerks'
Service Record Card file is similar today& in 1962, however,
Electro-Kardex machines replaced the manual files.
During the period from February 1956 to July 1961 the
Position Control Section maintained records for the administra-
tive employees of the National Security Council. Available
records 2/ show that an SF-7 form was kept for each employee
of the Council, a regular Table of Organization was maintained,
and personnel actions were processed and posted to the SF-7.
In addition, three types of reports were prepared for the
NSC. There was a requirement to submit Standard Form 113 each
month, one copy going to the Civil Service Commission and a
second to the Joint Committee on Reduction of Non-Essential
Federal Expenditures.* The information consisted of the number
* Under authority of Section 601, Title 6, Public Law 250,
77th Congress (55 Stat. 726), the Joint Committee on Reduc-
tion of Non-Essential Federal Expenditures required each
Department and Agency (CIA excepted) to report monthly on
the number of people employed. CIA performed this function
and reported on this information for the National Security
Council. There exists no written agreement between the NSC
and CIA as to the Agency's performing this or any administra-
tive functions that were handled for NSC. To this day (1971),
however, the Agency continues to provide limited administrative
support because the Council does not have enough employees
with background in personnel functions to handle all personnel
problems.
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of employees, their total monthly salary, and the number of
accessions and separations for the month.
Another NSC report prepared by the Agency for the Civil
Service Commission was the Geographic Survey of Federal Civilian
Employment, which was prepared annually from 1956 through 1960.
This report listed the total number of employees by state and
also listed information on each employee's veterans' preference
points. The report was required of all agencies by instructions
contained in Civil Service Commission Departmental Circular 831.
In response to Civil Service Commission Departmental
Circular 855, the Agency prepared annually during the 1956-60
period a Report of Salary and Wage Distribution of Federal
Civilian Employees and forwarded the Report to the Commission.
This listed the total number of NSC employees and the number in
each step of each grade.
Verification of Agency employment -- in response to credit
inquiries -- has always been a T&R responsibility. From 1947
until October 1951 overt Agency personnel referred credit repre-
sentatives directly to that TRIB employee responsible for re-
sponding to such inquiries. From October 1951 through July
1952 the name of the then Chief of TRB,
was used. 25X1A
The reason for the 1952 change to the use of the name of
Director of Personnel was that wife inadvertently
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discovered that it was thought, in at least one outside business
establishment, that the name of was fictitious..Y
Until 1952 the telephone inquiries were answered by the PI
clerks, and written inquiries of a routine nature were answered
by a statistical clerk who at that time was assigned to PI.
Credit inquiries have historically been handled in a
manner similar to that in use today -- verification of em-
ployee-provision of data concerning length of employment and
salary, TRB maintains records of dates and names of inquirers
for all overt credit references. Close coordination is main-
tained with the Central Cover Staff and the Office of Security.
Aside from providing accurate and up-to-date information
to outside inquiries there are a number of problems that com-
plicate the duties of the employee responsible for this function.
A number of crank calls are received during the course of a
year; these range from individuals venting anger at the Director
of Central Intelligence or the Agency in general to people,
obviously disturbed, who make little or no sense in relating
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their message or making their inquiry. An example of the latter
type of situation was the inquiry of the Norfolk, Virginia,
police authorities as to the employment of a man who had been
arrested on a morals charge. The man not only claimed to be
a CIA agent but, in addition, said that he was under cover as
a member of British royalty!
Cover becomes a problem at times if Agency employees
become careless about their own or their co-workers' cover
status. PI often encounters cases of Agency employees or
former employees trying to call a friend whose telephone ex-
tention number is unknown to them. If the friend happens to
be under cover, the caller -- who prdbably knows Agency cover
procedure -- often refuses to accept denial of the friend's
employment. This often leads to lengthy calls and frayed nerves.
There have been other cases of high-pressure and somewhat
unscrupulous credit companies trying to contact individuals
whose accounts are late and with whom the company may have lost
contact. As a last device the credit company resorts to calling
a selected cross-section of large local area employers in the
hope of finding the errant client. In 1965, because the volume
of telephone calls was becoming too burdensome, one such company
had to be asked to write for such information.
Because the Service Record Card provides the source
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material for response to credit inquiries and because there is
a need for immediate, current, and correct information the
credit verification function has been handled in the Position
Control Section.
C. Status Section
From the beginning of the Agency until July 1958, when
the function was transferred to Placement Division, the respon-
sibility for applicant processing for appointment, correspondence
with applicants, entrance-on-duty procedures, and the preparation
of the required legal appointment documents was assigned to the
Status Section of TRB.
From the late 1940's until 1953, there were two appoint-
ment clerks who handled correspondence with applicants and EOD
processing in a manner similar to that now used. Notification
was given to the PI clerks, who "slotted" the applicant against
the particular job for which he was slated once a prospective
employee was "put in process" for employment.
At this time the Agency was in a period of volatile growth,
and pressure to hire one hundred employees per week was put on
those employees of the Office of Personnel involved in the
entrance-on-duty function. Because of this pressure, there
were times when new employees were so crowded into rooms that
the tops of small safes had to be used for the signing of the
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appointment affidavits. During the early 1950's the Junior
Officer Training Program (JOTP) began, and the rapidity of
processing these employees further aggravated the situation.
After the new employee had been processed, the appoint-
ment papers accompanied the entrance-on-duty personnel action
to the Status Section for processing./ Status had responsi-
bility for preparation, authentication, and distribution of
official personnel actions and for preparation of computer
input of this material.
Until 1950, personnel actions were typed on manual
typewriters, and no byproduct information was produced. During
the 1950-51 period Status typed the action and punched the data
from the personnel actions onto IBM cards. Thus by running
the IBM cards the Agency had the capability of compiling sta-
tistics and some unsophisticated name listings.
With this development it became apparent that some incom-
plete and inaccurate data were being produced, and representa-
tives of the Office of General Services went to the then Acting
Director of Personnel with a plea to issue guidelines on the
scope and the need for accuracy of material to be forwarded
on personnel actions. The practices of poor personnel action
processing had developed because the clerks responsible for
preparing the Requests for Action were mainly interested in
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accomplishing the promotion or reassignment and felt that such
minor items as sex code or veterans preference, for example,
were unnecessary and inconsequential. The errors and omissions
may have been, at one time or another, almost any item on the
action.
With the advent of the machine listing capability it
became particularly important to have accurate and complete
information so that the data could be fully used. At first it
was thought that emphasis on the need for complete and accurate
data was being overstated. In mid-1951, however, the Office of
Personnel was provided with listings showing incomplete informa-
tion as a result of carelessness. Thereafter, firm guidelines
were issued on all personnel data to be submitted. The situation
improved, and the system was further refined during the 1953-56
period. Through this effort Office of Personnel reporting im-
proved immeasurably; and the improvement made possible such
reports -- which are taken for granted today -- as the Position
Control Register, the Date of Grade Roster, and the Qualifica-
tions registers. The Periodic Step Increase call-up system
was also automated, and this relieved the Position Control
Section of going through the manual procedure of notifying
personnel offices of upcoming PSI:s.22/
In 1952 the manual typewriters in Status were replaced
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by electric typewriters in an attempt to speed up both person-
nel action and applicant processing./ In 1957 Flexowriters
were introduced, and the paper tape byproduct was used to
punch information on cards. In 1960 the Agency purchased
FlexowTiters with a paper tape byproduct capable of direct
computer input, and this was the basis for the system in use
today.
There was never any real opposition within the Agency
to the development of innovative ideas that were introduced
through the years. It should be noted that when the Finance-
Personnel system was initiated and put into effect it was the
first such truly integrated system in government at that time./
The history of records technology, which outlines the develop-
.? ment and impact of machine records in the Agency, contains
some further details of this system. The Status Section is now
responsible for the computer input for most Office of Personnel
machine reports. Some of the more important programs are Fit-
ness Report input from material coded in TRB, Qualifications
input from material coded by the Qualifications Analysis Branch,
and Overseas information provided through the Statistical
Reporting Branch.
D. Files Section
The Files Section has undergone few functional changes
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over the years. During the period when the Overt and Covert
Personnel Divisions were in existence, transfer of employees
to organizational elements serviced by one or the other Divi-
sion necessitated the transfer of the Official Personnel Folder
(OPF) from one Files Section to the other. The need-to-know
principle was strictly enforced, and there was great reluctance
to exchange information. This caused confusion and problems
in controlling the OPF.L/
In late 1952 responsibility for applicant files was
assigned to the Files Section. Until February 1968 the activ-
ity of the Files Section had been divided into two main func-
tional areas -- applicant files and employee files. The applicant
files were used to support the recruitment and appointment activ-
ities, and the employee files were used primarily by operating
and placement officers. In 1968 the applicant activity was
placed under the jurisdiction of the Correspondence Branch of
the Staff Personnel Division. It was believed that in view of
the degree of use of the applicant files by the Staff Personnel
Division a better functional purpose would be served.
The Files Section has been responsible for making up an
Official Personnel Folder when an individual enters on duty
with the Agency. Initiating action to obtain records of pre-
vious Federal employment and to transfer leave balances has
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remained as a Files Section responsibility. Coordination with
the Office of Security, the Office of Finance, and the Central
Cover Staff has been a requirement in obtaining these records.
Before 1955 the contents of Official Personnel Folders
were maintained according to practice recommended by the Civil
Service Commission; permanent records were held in chronological
sequence on the right side of the folder, and temporary papers
were maintained on the left side. In 1954 it was decided to
organize the permanent papers into functional sections, filing
the permanent papers chronologically in appropriate sections
(see Attachment C), that were identified as follows: "Actions,"
"Fitness Reports," "Other," "Medical," and "Security/P.H.S."
By June 1955 all folders had been reviewed, and the project
had been completed.i&
Two principal problems confronting the Files Section have
been those of loan control and storage space. Control problems
have resulted in the establishment of procedures to identify
authorized requestors and the extent of their authority to
obtain files -- normally loans of the OPF should be confined
to requestors in the same career service or organizational
element as the employee. Although published regulatory issu-
ances defined the limits of this authority and specified the
length of time that an OPF could be retained, in a high percentage
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of cases this time limit has not been observed; and lack of
the manpower required for continued follow-up has made it im-
possible to enforce the limitation. The Files Section has
always had the responsibility for insuring that only authorized
personnel receive an OPF at the time of initial release. Once
the OPF is out of the Files Section, the responsibility for
control is vested in the authorized requestor. It has always
been a problem for the Files Section to maintain records of
where the OPF may be once it has been charged out.
The Files Section has always been responsible for pre-
paring transcripts outlining CIA employment and forwarding to
a subsequent employing Agency the leave records and insurance
forms of former employees. These records are forwarded after
.CIA receives official notification that a former employee has
obtained a new position. Close coordination is maintained
with Security, the Central Cover Staff, and the Records Inte-
gration Division for former service with Office of Strategic
Services.* Until May 1969 the Correspondence Branch, working
from a rough draft typed in the Files Section, prepared the
letter to the employing Agency; the Files Section has never
* Unlike other records of military service, which are de-
posited in the National Persorinel Records Center, St. Louis,
Missouri, the records of OSS are in the custody of CIA.
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had the capability of preparing such correspondence. Since
May 1969 the finished typing has been done in the Status
Section or by the Branch secretary.
By the end of the 1950's the lack of Agency storage space
was becoming critical. Before this time the Official Personnel
Folder for a resigned employee was sent to the Agency Records
Center about two years after his departure. Any records
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pertaining to government service prior to Agency employment
were included with CIA records. If the Agency received a re-
quest for those records at a later date, the other-agency
records were removed from the OPF before it was forwarded to
the requestor. Because storage space was at a premium it was
decided to recall all terminated OPF's and extract the other-
agency records and forward them to the Federal Records Center.
This practice was begun in August 1962; and in order to mini-
mize the burden for Federal Records Center, files were returned
at the rate of 50 per week. The procedure (see Attachment D)
of such record retirement is still in practice, although no
weekly number limit is in effect at the present time./
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From 1956 to November 1964 the Files Section was respon-
sible for reviewing OPF's and responding to the requests of
government investigators. Preparation of OPF's for this re-
view was time-consuming, and the investigators were generally
not given much information; documents such as Fitness Reports,
debt letters, and memoranda containing derogatory information
were never shown or discussed with the investigator./ Any
questions concerning operational security had to be referred
to the Office of Security for coordination with the CI Staff.
In December 1964 this function was transferred to the External
Employment Activity Branch at the request of its chief.
The distribution of Office of Personnel mail has been a
Files Section responsibility at least since 1949. This func-
tion, the duties of which have not changed very much, includes
the routing of all incoming and outgoing Office of Personnel
interoffice mail as well as receipt and dispatch of US mail.
The Mail Clerk has liaison with the main Agency mail room,
particularly to assist in sorting mail that has not been
delivered because of incomplete addresses or lack of records.
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The Mail Clerk also must insure that mail to or from Congress
or high government officials is given priority, and that
special-interest applicant files are forwarded with minimum
delay. Such action as the foregoing -- and the general sen-
sitivity of the job -- permit this slot to be classified at
a higher grade than that of the File Section clerk.
Down through the years Files Section personnel, or in
some cases specially chosen personnel temporarily assigned to
Files Section duties, have been involved in project operations.
Three of the most important such assignments have been the
computation of Service Computation Dates and Longevity Compu-
tation Dates; the work involving the merging of division per-
sonnel folders into the OPF's; and -- most recently -- the OPF
record purge.
With the passage of the Annual and Sick Leave Act (ef-
fective 6 January 1952) it became necessary to review the OPF's
of all Agency personnel on duty because the Act related the
bi-weekly leave-earning category to the length of government
service. At the same time it was decided to compute a similar
date pertaining only to Agency service -- to be used basically
for granting of longevity awards for Agency service. Partici-
pants in this venture were TRB employees as well as Office of
Personnel employees from other offices. This activity took
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approximately five months./
In preparation for the controversial 701 project it was
necessary for Agency management to review certain OPF's. It
was discovered that there were some files that seemed to be
incomplete. Upon checking further it was discovered that some
material that should have been in the OPF's was stored in
Division or "soft files." This led to a requirement that all
Divisions forward their "soft folders" to the Files Section
so that material that properly should have been in OPF's could
be extracted and refiled in the OPF. This project started in
1961, and the major part of the work was completed by 1963 --
but to this date (1971) an occasional "soft folder" will turn
up for review./
In an attempt to relieve the worsening records-storage
problem at the Agency Records Center, it was decided in 1968
that a records purge would be initiated for the purpose of
effecting an approximate 50 percent reduction in stored records.
A determination was made by the management of the Office of
Personnel as to the type of records stored in terminated OPF's
that could be discarded and what type had to be retained in
accord with Federal regulations, legal requirements, and anti-
cipated future Agency needs. (See Attachment E.) In December
1968 the first of 960 cartons (one-cubic-foot capacity) was
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ordered so that one senior Files Section employee, and later
an Office of Personnel task force, could purge the expendable
material. The project, encompassing approximately 33,000 OPF's,
was completed in August 1969, and a total reduction of 41.3
percent was accomplished.
E. Fitness Report Control
The monitoring of delinquent Fitness Reports has been an
Agency policy since 1953. At the outset the control point for
receipt of reports was in the Position Control Section. Visual
colored tabs identifying the month the report was due were used
on each Service Record Card. (See Attachment F.) Typed name
listings indicating personnel for whom a report was due were
sent to Agency components each month. All Fitness Reports were
routed to the PI clerks, who noted receipt on the Service Record
Card. Periodically, name listings of personnel whose Fitness
Reports were past due were forwarded to Divisions. Branch
Records indicate that the last "call-up" listings were mailed
from PI on 31 October 1958, and receipting of reports by PI
ceased in March 1959. In May 1959 an Office of Personnel
Memorandum spelled out the new procedures for Fitness Report
processing. Under these guidelines operating components would
forward the completed reports to the Control Clerk/Personnel
Operations Division for checking against an EAM listing of the
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reports due at that time. By distribution of copies of the
EAM listing, the Control Clerk had previously notified compo-
nents of the report being due. After receipting, the reports
on supergrade employees were sent to the Office of the Director
of Personnel for filing; and reports for grade GS-15 and below
employees were sent to the Files Section./
In 1961 the then Deputy Director of Central Intelligence,
Gene C P Caen, in conducting a review of OPF's for the
701 project, discovered that in some cases Fitness Reports for
previous years were not in the OFF. His concern in this matter
was one of the factors leading to the introduction of a
computer-based Fitness Report control./
Under this system the Fitness Reports were forwarded to
the Office of Chief of the TB where, before preparation of a
computer input code, they were checked for accuracy of iden-
tifying information. After completion of coding, the Status
Section prepared a:paper tape message which resulted in a
monthly up-dated call-up and a delinquency listing. These
listings were forwarded, through the Statistical Reporting
Branch, to the Fitness Report Control Unit for distribution
to each Agency component. The above procedure is the same
now used; there have been no significant changes since its
inception in 1962.
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25X1A
II. Statistical Reporting Branch*
A. Introduction
The reporting of Agency strength began in 1947 with the
establishment of CIA; it covers employees from the time of
their application until the time of their retirement. Between
18 September 1947 and May 1954 the responsibility was given to
various Office of Personnel components. Since 1954 the records
have been the responsibility of the Statistical Reporting Branch
(SRB). Although the office title has been unchanged for years,
the type and number of reports and the methods and techniques
used in recording and producing statistical data have gone
through many progressive steps. Today (1971) reporting is
being done by second- and third-generation computers.
The size of SRB's staffing complement throughout these
years has remained almost constant. The early years required
approximately ten employees to meet reporting requirements.
The majority of reports were prepared by hand, and reports
were few in number. Today fewer reports are prepared by hand,
but the number of employees remains about the same. The number
was the principal author of this section.
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of computer-generated reports has increased considerably, how-
ever, because of increased need and the increased capability
of Automatic Data Processing.
The trend in Personnel Statistical Reporting is the
selective elimination of hard-copy reports produced for dis-
tribution and/or for possible reference. The ability of the
new third-generation system to provide data on demand or query
will eliminate the need for many of these hard-copy reports.
AutOmatic Data Processing has proved to be an exceptional
system for recording and reporting data, but it also has its
shortcomings. ADP seems to encourage an increase in the number
of reports being produced; it increases storage problems; there
is duplication of data; report costs increase; management con-
tinually changes its requirements, causing costly reprogramming
or waste of programming effort; and report requirements become
more complicated and thereby require more programming skills.
As the computer field becomes more specialized, the greater
the distance becomes between the inputter in a computer system
and the user of the data. As this distance increases, so does
the communication time involved between inputters of data,
requestors of data output, and the computer personnel -- the
informal working relationship that attended the introduction
of the IBM Electric Accounting Machine is a thing of the past.
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Automatic Data Processing has formalized procedures, creating
compartmentation and fields of specialization.
B. Background in Early Personnel Reporting
The history of the Statistical Reporting Branch and its
predecessors is really a reflection of the great changes in
both the methods and techniques of collecting personnel status
data and in the means of reporting and presenting such data.
There are many milestones that identify the causes for these
changes: the rapid growth of the Agency; the use of Electric
Accounting Machines (EAM); the initiations of the Service
Designations to identify employees by the type of work they
are performing (Support, Intelligence, Clandestine, and the
like); the adoption of an Agency Career Service System; the
influence of computers (RCA 501) to provide better systems
for record keeping and reporting; and, more recently, the inno-
vation of categorizing employees and positions as: Profes-
sional, Technical, Communicator, Clerical, and Wage Board.
All these innovations increased the number and types of
recurring reports. The capabilities of the computer's magnetic
tapes produced and provided storage for a wealth of personnel
status data, which is currently up-dated and readily available
for retrieval and reference.
The Statistical Reporting Branch was approved on 29 May
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1954 (see Attachment G) and its function was to be responsible
for the preparation, analysis, and presentation of comprehen-
sive personnel statistical reports and data pertaining to the
Agency's current T/0 positions, strength, ceilings, grade dis-
tribution, separations, reassignments, turnover rates, promotions,
promotion rates, and such other personnel reports and statis-
tical data as may be required or requested by authorized Agency
officials. In order to carry out these functions ten positions
were established:*
Personnel Research Officer (Chief) GS-13
Personnel Research Analyst GS-l2
it ti GS-ll
it it It GS-09
it it GS-07
Statistical Draftsman GS-07
Assistant GS-07
IT GS-05
Secretary (Steno) GS-05
Clerk Typist GS-04
It would be convenient to start SEB's history as of 29 May
1954 because it still exists today as SRB, but the history of
the Statistical Reporting Branch is in reality the history of
the Agency's personnel record keeping and strength reporting;
and developments trace back to 1947. The Central Intelligence
25X1A
The Chief of the Branch was who served
from 28 September 1952 to 11 February 1955. The Deputy
25X1A Chief was M=1. who'was in the Branch from
26 November 1951 to 18 December 1955.
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Agency's organization chart dated 15 October 1947 reflects that
under the Office of the Executive for Administration and Manage-
ment there were four Branches: Budget and Finance, Services,
Personnel, and Management. The Management Branch was the first
office under CIA to have responsibility for personnel strength
reporting.
General Order No. 24, dated 20 September 1949, redefined
the staff structure for the Office of the Executive for Admin-
istration and Management, placed the Executive in line command,
and put Management, Budget, and Personnel on a staff level;
but the 5 October 1949 revision of General Order No. 24
took from the jurisdiction of the Budget, Personnel
and Services Offices the non-policy procedure, ergo,
service activities of their respective overt and
covert branches and grouped them into two new staffs
to service parallel "overt" and "covert" activities.
The revised and implemented Order, effective 5 Octo-
ber 1949, retained earlier organizational concepts
but changed titles of Overt Support Staff to Admin-
istrative Staff and the Covert Support Staff to that
of Special Support Staff./
The Administrative Staff and the Special Support Staff
provided personnel strength reports -- "Vouchered Personnel
Status Report" and "Unvouchered Personnel Status Report" --
as they pertained to their on-duty personnel. This divided
strength reporting continued until 1951.
In the CIA records there iS a personnel strength report
as of the close of business on 17 September 1947,on a form
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which bears the heading: Central Intelligence Agency. (See
Attachment H.) This report must have been one of the first
personnel strength reports to be published after the Central
Intelligence Group (CIG) became CIA. This style of report was
actually a carry-over from the CIG days. SRB's historical re-
cords contain a series of these reports that date back to 7 March
1947. (See Attachment I.) The personnel strength reports were
prepared daily and continued to be published through October
1947. Comparison of the total Agency on-duty strength of
as reflected on the Personnel Report as of 17 September 1947,
with the 28 February 1971 on-duty strength (staff personnel and
military details) of almost indicates something of the
magnitude of the effort that would have to be devoted to improving
techniques in record keeping and personnel reporting.*
* The history of SRB pertains to the reporting of Staff Em-
ployees, Staff Agents -- an appointed Agency employee who, for
reasons of operational or covert sensitivity, is internally
administered in a compartmented manner -- Military Details, a few
Contract Employees, Consultants, WAE (when actually employed)
Employees, Details-In (employees on loan from other Federal
Government Agencies), Details-Out (Agency employees on loan to
other Federal Government Agencies), Summer Employees, and Part-
time Employees. Agency on-duty strength and strength reporting
shows only one side of the coin. To get the total picture one
must include the Contract Employees A and B, Career Agents,
(Aliens), and the like, who are currently handled and were
also handled in the past by the Contract Personnel Division.
At this point the history of SET will not include this other
side of the coin; this phase of reporting will be covered by
CPD's history.
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Like many of the other reports that were surfaced in the
process of writing this history, the 17 September 1947 report
does not clarify what was included and what was not -- for
example, were all the Foreign Field employees included, were
the contract or project types part of the report? Reports were
often devoid of footnotes or explanations, and it appears that
only the employees compiling the reports and the users were
actually aware of the contents.
This Personnel Strength Report was compiled by office,
and the distribution was restricted to top Agency officials.
No office-strength statistics or listings were provided to com-
ponents in the early years (1947-52) by the central Personnel
Office or any other office. Each Office had to compile its
own statistics and maintain its own personnel accountability.*
Although the tremendous increase in Agency strength from
during the period of the Korean conflict (June
1950 through July 1953) initiated some of the more noteworthy
changes in reporting, the innovation of having "career
* Even with all the reporting services provided today (1971),
some Agency components still maintain and fill their own re-
porting requirements. The reason is that their records, in
most cases, are more current than those they receive from the
current computer reporting systems. Although a majority of the
computer reports are received within eight work-days, some
reports are not available until the 15th day after the end-of-
month cutoff.
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designations" for each Agency Career employee also increased
reporting requirements. This innovation was initiated in March
1950 by General Walter B. Smith, the DCI, when he expressed to
the Honorable John McCloy a desire to have a "corps of well-
qualified men who are interested in making a career with the
CIA." &
of 20 May 1953 established 21 career
designations determined on the basis of the office of assign-
ment of the employee. (See Attachment J.) Once all the Agency
career employees were identified with a career designation,
report requirements began to snowball. First, the Heads of
Career Service Boards and other Agency Officials were inter-
ested in knowing the on-duty strength of Agency career employees
by career designations and by office.* Later, there were re-
quirements for reports that would reflect Agency career employees
by CD and by grade; for date-of-grade listings by CD for use
mm by the CD promotion panels; more recently for listings of Agency
mnit
employees by their CD** for use in the two retirement systems --
Civil Service and CIA; and for listings of career employees by
sub-category of employment -- professional, technical, communi-
cator, clerical and wage board.
* See Figure 1, page 34.
** Now (1971) referred to as Service Designation (SD).
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At present (February 1971) there are more than 100 re-
ports in which one of the sort controls for the report is based
on the service designation (SD) of the employee or the SD of
the position. This figure of 100 does not include the many
other tabulations and listings in which the SD is one of the
personnel status items listed.
From the latter part of 1947 through early 1952, most of
the strength reporting was done by hand in various offices and
by various methods. On 5 October 1949, when the Personnel Office
was split into the Administrative Support Staff, which provided
administrative service to the overt offices, and the Special
Support Staff, which serviced the covert offices, both staffs
submitted strength reports on their respective personnel.
In 1947 the Department of Defense requested the CIG to
prepare a Mobilization Study showing the number of employees
who were in the Military Reserves. The Management Office under
the Executive Staff for Administration and Management was given
this responsibility. working under 25X1A
, prepared the report by going from office to office
and collecting the necessary data, was not able to collect 25X1A
statistics on the Covert (Oso) group, and therefore strength
figures represented only the overt employees. By going from
office to office, however, was not only able to compile
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strength figures pertaining to employees in the Military Re-
serves but was also able to collect the total overt strength
of each office. These strength figures were given to
who at that time were assigned
to the Reference Center of the Office of the Executive for
Administration and Management; they punched the data into IBM
cards. This was the starting point in the use of IBM's Electric
Accounting Machines (EAM) for strength reporting. The figures
received from EAM were transferred to pre-printed formats and
reproduced by photostating.E2/
From 1947 through 1950 this Management Staff was respon-
sible for preparing various on-duty strength reports and re-
lated statistics on promotions, separations, and status of
security clearances. (See Attachment K.) At the time this
staff was responsible for preparing Tables of Organization for
each office and was using the EAM system for printing out the
T/O's.
The period of police action by the United States in Korea
(June 1950 to July 1953) was the period of the Agency's great-
est growth.
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In 1950 the Machine Records Division of the Special
Support Staff assigned full-time to assist 25X1A
the Personnel Office in compiling statistical data on Agency
personnel; IBM equipment was to be used in strength reporting,
listings, and Tables of Organizations./ This was the initial
step in constructing for the Agency an optimum reporting system
that would more than adequately fulfill the Agency's total re-
porting and record-keeping requirements. As noted several
times previously, the machine reporting provided during the
period from 1950 through the early part of 1953 concerned the
vouchered side of the on-duty strength. Because of the security
implications, there was a reluctance to place covert strength
statistics or employee names on IBM cards. The Foreign Field
and covert statistics still had to be compiled manually by
querying the various components having unvouchered personnel
assigned to their offices and then incorporating these data
into Agency reports reflecting the total on-duty strength.
After the Position Control Units were established under
the Overt and Covert Branches, personnel actions were processed
through these units; and strength records on an office level
were maintained by each position control clerk. A record was
maintained on the number of accessions, separations, and reas-
signments into and out of an office. The number of applicants
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in process and the on-duty strength were identified by type of
employee: Staff Employee, Staff Agent, Military Detail, Con-
sultant, Project Employee, or Contract Employee. Each position
control clerk kept in the Kardex tray a tally-sheet for each
office, and a clerk recorded any changes in the office strength.
Once a week a reports clerk would compile a strength report by
office, reflecting all the various types of personnel actions
that had affected the office's on-duty strength -- accessions,
separations, and reassignments in and out. Personnel Division
(Overt) had a statistical coding clerk whose function was to
make the office strength counts, and under Personnel Division
(Covert) there was a reports clerk in the Reports Unit who
prepared a weekly strength report. Both clerks reported to
their respective Division Chiefs. In early 1951 two weekly
reports were being prepared in the Covert Branch: one was
called "Project Strength Report," and the other was called
"Personnel Strength Report." (See Attachment L.)
The first weekly report in May 1951 was done completely
by hand; in subsequent reports the EAM system provided on IBM
machine paper form a listing of all the offices and all that
the reports clerk had to do was to type the column headings
on the report form and fill in the required statistical figures.
These completed reports were distributed to the Chief of the
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Personnel Division (Covert),
From time to time the Personnel Office called on the
Machine Records Division (MRD) of General Services for IBM
assistance. Early 1951 copies of completed Personnel Actions
were being sent to MRD where selected data were coded and
key-punched into IBM cards, and this started the building of
Personnel Status Card Files./ (See Attachment M.)
In NoveMber 1951 it was decided that the Personnel Office
Personnel Studies and Procedures Staff would
represent the Personnel Office for the purpose of
concurring in the requests from other components of
the Agency for the machine records preparation of
personnel statistics./
This responsibility was passed on to SEB, which became the
central point for all requests relating to personnel statistics
and other personnel data. C/SRB reviewed all requests and de-
termined the need, the method of preparation -- either manually
or by machine (EAM or Computer), and prepared the work order
if the data had to be compiled by machines.
Before 30 September 1952 personnel status reports ex-
cluded Staff Agents who were assigned to project T/Ors, but
at the request of Assistant Deputy Director (Administration),
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Staff employees as well as Staff Agents were included in the
Personnel Office monthly status reports and were charged against
the authorized office ceilings./ Reporting Staff Agent figures
was restricted in the early years, and any accountability was
done in numbers only and were counted from Kardex cards maintained
by PD(C). It wasn't until early 1954 that approval was given
OP to put SA's on IBM cards.
The stipulation was that these IBM cards became the prop-
erty of the Research Branch, and when not in use the cards were
to be kept in a metal container in a safe within SRB. At the
end of each month, before the running of month-end reports,
these cards were hand-carried to MRD so that they could be
merged with the personnel Status Master Files containing data
on regular staff employees. It was the responsibility of the
Research Branch to keep this Staff Agent card file current.
This system remained unchanged for approximately one year,
after which the SA card file was permanently merged with the
Personnel Status Master Files.
The next major change that improved the strength reporting
and record-keeping functions came in fiscal year 1957; it was
the placing of the military details into the EAM card system.
From that time on military personnel actions were coded and
processed along with the regular personnel actions on civilian
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employees. Also included with the coding of military detail
personnel actions was the coding of a selected group of US
contract employees. This coding of personnel actions pertaining
to Staff Agents, Military Details, and Contract Employees con-
tinued until fiscal year 1961 when the new RCA 501 System re-
placed the old IBM multiple-card system.
These milestones reflect some of the reasons why changes
occurred in numbers and types of reports from SEB, but in
addition there were a number of dedicated individuals who were
determined to improve the techniques and methods of statistical
reporting on Agency personnel. During his tenure as Deputy
Director and Director of Personnel,* George Meloon promoted
and defended innovation; and, as Branch Chief from 28 September
1952 to 11 February 1955, was the recipient of
a number of encomiums (for himself and his staff). (See Attach-
ment N.)
In late 1952 or early 1953 representatives from the Machine
Records Division
met with Meloon to discuss some of the problems
that concerned the information being received by MRD and used
in the preparation of Personnel Strength Reports for the Personnel
* Deputy Director, 1950-51, and Director, 1951-54.
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Office. Some of the data being received by MRD were incom-
plete; personnel items were missing from the Personnel Actions;
there were duplications of data; and the transfer of funds
actions were creating problems because an employee was assigned
a new serial nuMber whenever he went from vouchered funds to
unvouchered funds and vice versa. The representatives from
MED requested that the Personnel Office review its record-
keeping procedures in order to insure that future reports would
be complete, accurate, and current./
Recording procedures were revised and tightened up.
Personnel Actions that were sent to MED for coding were better
prepared and were complete. Actions were received every day,
and end-of-month cutoffs were established in order to control
the processing of actions for the month-end reports.
C. IBM Multiple-Card System
From mid-1953 through 1956 there was a vast improvement
in the IBM multiple-card system and in the validity of the data
that it contained. Not only did the Personnel Status Card Files
grow (See Attachment M) but so did their capabilities. The
card system became dependable; it provided many reports and
services, it was able to meet time schedules, it printed mul-
tiple copies of reports, it handled large volumes of actions
each month, and not only did it provide current data but it
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also began to provide a history of processed employee personnel
actions.
In fiscal year 1955 plans were in progress to establish
a complete IBM punched card history on all staff employees who
entered on duty from 18 September 1947 through 31 December 1956.
The punched card history in 1956 had data on staff employees
going back to 1951. A simplified coding system was perfected,
one that would reduce the size of the history by two-thirds
and would enable the EAM system to produce historical studies
more simply and in less time./
Personnel files on employees currently on duty, as well
as on those who separated, were requested from the OP fileroom
and from Records Center. The information was coded, which re-
sulted in approximately one-quarter of a million IBM cards.
The coding was accomplished in fiscal year 1959 by two employees
who were assigned to SEB. The completion of this coding oc-
curred, however, during the period when plans and the programming
of requirements for the new RCA 501 systems were in process,
and therefore the OP History Card File was set aside where it
?
lay dormant until the late 1960's when during a records clean-up
exercise to reduce storage space, this history file was put
onto magnetic tape but in no method Useful for retrieval. Even
though the necessary data were in the cards, the sequence in
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which the information was coded and captured into the cards
has varied. To put the information in usable order would take
one prograznmer about four months.
The August 1952 merging of OSO (Office of Special Opera-
tions) with OPC (Office of Policy Coordination) under the Deputy
Director for Plans established a central point for processing
actions pertaining to both unvouchered employees and vouchered
ones in the newly constituted Clandestine Service; and when
the Office of Personnel was reorganized a little over a year
later (November 1953) , the Overt and Covert Personnel Divisions
were merged into one Division called the Processing and Records
Division. The new Division provided a central control of
personnel processing and record keeping, and the working rela-
tionships with MRD improved as personnel data were now received
from one central office. Combining OSO and OPC and merging
the Personnel Divisions proved that the IBM multiple-card file
systems could be used to meet the Personnel Office's require-
ments for personnel processing, record keeping, and personnel
strength reporting.
Because the IBM card had only 80 columns within which to
punch data, a number of codes -- numeric, alpha, and alpha-
numeric -- were established through the coordination of MRD
and the Personnel Office to reduce the amount of data put on
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the cards. As the status data on an employee expanded, IBM
trailer cards were used to hold the added data. (See Attach-
ment M.)
There were numeric codes for: (See Attachment O.)
Organization
Country-city
Sex
Occupational Title
He
Language
Type of Employee
Type of Action
Funds
Project
Grade Schedule, etc.
These codes continued to expand as the IBM system increased
its capabilities, and even today (1971) many of the codes are
still being used. The users of the machine reports learned
to decipher these codes through continued use. By using codes,
more information could be placed on a page, and the data could
be retrieved much more quickly from the IBM card system. The
use of codes provided some security to the data when reflected
on machine listings, so there were advantages -- and there
still are -- in the use of codes.
D. PUblication of the Monthly Personnel Statistical Review
As of 31 January 1953, while assigned
to the Research and Planning Staff, prepared the first of a
series of Monthly Personnel Statistical Reviews. (See Attach-
ment P.) These MPSR's were really the first major successful
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attempt to provide the Personnel Office and top Agency officials
with a complete overall review of the Agency's personnel strength
and related statistics on accessions, separations, promotions,
applicants-in-process, grade distribution of on-duty strength,
and the like. The MPSR was broken down to Office level and
summarized on a Directorate level, with an overall Agency sum-
marization of the Directorate figures. The MPSR provided a
central point for various statistical data, and over the past
18 years it has been an invaluable source of ready reference
for filling many requests.
As a result of the March 1956 survey (see Attachment Q)
of the statistical data contained in the MPSR, the MPSR was
revised as of 30 June 1956 -- the data on separations, promo-
tions, and grade distribution were removed from the MPSR, and
individual quarterly supplements to the MPSR were established.
The supplements were as follow:
Title For Quarter Ending
1. Quarterly Statistical Review Mar, Jun, Sept, Dec
of Staff Personnel Separations
2. Quarterly Statistical Review Feb, May, Aug, Nov
of Staff Personnel Promotions
3. Quarterly Statistical Review. Jan, Apr, Jul, Oct
of Staff Personnel Grade
Distribution
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The MPSR went from 47 pages in 31 January 1953 to 79 pages
in the May 1956 issue. The revised issue of the MPSR for
30 June 1956 had 28 pages.
The revised MPSR and its three Supplements continued
to be published until June 1964 when the Quarterly Separations
and Promotion Supplements were changed to a semiannual pub-
lication (June-December) and the Grade Distribution Supple-
ment became part of the MPSR, which was revised again as of
September 1964 and became the Personnel Strength Quarterly
Statistical Review (PSQSR). As of 1 January 1968 the Quar-
terly Separation Supplement was discontinued; the Quarterly
Promotion Supplement was no longer produced after 1 January
1969, but the data were and still are (1971) being retained
in other reports for reference. The PSQSR continued to be
produced after January 1969 but only in a very abbreviated
form for reference use in SRB.
There have been various surveys made to study the elim-
ination of unnecessary reports and duplication of data and
to consolidate reports whenever possible. In 1959,
of the Management Staff was asked to make a survey of
SRB reports, both the manual reporting and that produced by
the IBM card system. The net result was an increase in the
work load imposed on MRD and on SRB; during this period there
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were new career service reports requested that more than offset
the reductions that were recommended./
More recently,* reports surveys have been (and still are)
carried on by the OP/Control Division to eliminate unnecessary
reports, to remove the duplication of data, to consolidate
reports, and also to determine what the future report require-
ments will be under the new third-generation computers.
E. The Flexowriter -- Introduction to ADP
Automatic Data Processing was the next step to improve
personnel processing, record keeping, and personnel strength
reporting. ADP had an impressive start with the adoption of
the Programmatic Flexowriter in 1957. The use of Flexowriter
by the Status Unit of the Transactions and Records Branch to
type personnel actions eliminated the need for the manual
coding of personnel actions. As actions were being typed, a
paper tape was punched with selected data. The paper tape was
then processed through a tape-to-card converter and the cards
sent to MRD for input. This new system expedited the processing
of personnel actions for input.
In late 1958 plans were under way to select a computer
that would satisfy the Support Offices' report requirements.
* 1968-70-71.
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The choice was the RCA 501 which was in operation by September
1960. Under the new RCA 501 system, SEB had to provide missing
personnel status data on all the military details (approxi-
mately 1,000), staff agents, WAE's (when actually employed
employees), consultants, and contract employees in order that
the data on these employees should conform to the data that
were being carried on staff employees./
In addition, SEB had to work closely with MRD in pro-
viding them with initial input strength figures.* SEB checked
each figure on all reports produced by the new RCA 501 against
those produced by the IBM system for a period of six months --
the period of time that the RCA 501 and the IBM multiple-card
system ran as a dual system -- isolating errors in an effort
to correct computer programs. Revised and standardized formats
to be used in the listing and tabulation of personnel by the
new computer system were implemented (see Attachment R). SEB
was constantly reviewing the numerous report requirements
levied on MED in connection with the conversion to the digital
computer of personnel accounting and record keeping. Many of
the original problems, such as the accountability of part-timers,
cutoff dates, and a uniform method of processing personnel
* See Figure 2, page 50.
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Strength Input Form Used in Initial Conversion to RCA 501 System
January 1961
?
..0 ata To
Be
-ntored
No. Of.
Characters
To P
.
Ifbm%Deocription
,nter
.
.
.
Item-
No
Ik-,75.2,
Org.-Code ?1
fftlitarv Detail (Staffing)
1
? 2
4
....
I
Militar, Detail (Development)
staff Emplo ., ree Staffing)
. .2._
3
4
5
4
.
12---m
1
4
Staff Employees (Develo ment
-
Staff Ar-:ents (Str'Sfing)
6
4
Staff.Ac%ts ()IcvoloF.Iont
7
3
U.S. Contract (171,111) .
8
9
10
3
U.S. Contract
(Part) ,
3
'
Part Time (5t.T22-EIT)
3
Part Time (Development)
11
3
.
Detail In . ?
12
3
3
LV:01) (CstrifLijir
?
13
L\/OP (Develonmant .
lA
t.
3
Detail Out ?
15
3
Sumer Only .
VAE4Uns1otted
Consultants (A7,encv)
:
16
1/
18
?
TT
3
..........
3
3
Consultants (14S0)
39
?
3
MSA
?
20
,
.21
3
Civilian Recervo
22
4
Natives
23
3
GSA Details
24
i
3
NSC
25
1
4
Authorized Strength a/
26
I 'Mots *
27
.
17[_Org. Title
2S
. _
e 'Dept
("dU.S. Field
Frgn Field
? ?
AppOoved For Relea
? , ?
a/.Enter On Dept Only - Fill in
? with 2Ispaces for US Fid. and
Frgp Yid.
b/ 17 Digits, including spaces, etc.
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actions into the new system, were eliminated.
As of 30 June 1961, approximately two-thirds of the
regular recurring reports were being produced by the newly
established RCA 501 system(s); and reports were being received
in SRB from two to ten days earlier than the IBM multiple-card
system was able to provide. The major reports that had not
been converted at this time* were the Tables of Organization
(T/O's), the Date of Grade rosters, and the CSSA (Career Serv-
ice Staffing Authorization).
Today (1971) the CSSA is called the Career Service Cumu-
lative Processed Changes, and it is still being prepared
manually; there were (and still are) too many problems in the
preparation of this report by means of the RCA 501. Among
other reports still being prepared by the IBM multiple-card
system are the Invitee Travel reports, the Military Status
Questionnaire reports, the T/0 Flexoline Strips, and portions
of the Personnel Emergency and Locator reports.
The original equipment that came with the RCA 501 com-
puter did not live up to its expectations; therefore, to improve
the RCA 501's capabilities an RCA 301 was installed in November
1962 to increase the input and output capabilities of the
* 30 June 1961.
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RCA 501 systems. Later, to improve the memory capacity and
to lessen the tremendous workload on the RCA 501-301, the RCA
Spectra 70-45 was added (June 1967), and in the last several
years many of OP's new requirements, as well as some of the
old, have been programmed for the IBM 360.11/ These computer
systems are used not only to fulfill OP's requirements but
also to service the Offices of Logistics, Security, Training,
and Finance.
For most personnel data* the input into the current
system is still done by the Programmatic Flexowriter, except
that the punch paper tape produced by the Flexowriter is used
as the input to the computer systems rather than as a means
of producing an IBM card. ,Although many of the reports that
were being produced by the old IBM card system were placed on
the new RCA 501 computer system by straight conversion, there
were some that had to be completely reprogrammed. The T/O's
were revised on the basis of HB 20-250, and a new pre-printed
format was used to list the T/O's. (See Attachment R, Item 6.)
Before the old reports were converted to the new system, each
report was reviewed and either changes or deletions were made
* The CIA Retirement and Disability System uses the CDC 915
Page Reader, which uses Optical Scanning as a means of input.
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to the report format or the report was deleted altogether.
It did not take long before there was an increase in
report requirements, especially one-time requirements called
"specials."* Although there were, and still are, many good
features about the computer systems, there are also some bad
ones. If incorrect data get into the system, all the reports
that require these data will reflect the incorrect data, and
it is too late to change or correct the errors without rerun-
ning the complete programs; in the old card system, however,
errors were sometimes detected early before reports were pro-
duced. All that then had to be done was to pull from the deck
of cards the card having the bad data, correct the data, input
the corrected card and continue with the remaining reports.**
In this new computer personnel field, employees become
specialists, handling only a portion of the total Automatic
Data Processing System. Users, those who submit a computer
* During the past 10 fiscal years there has been an average
of 78 special computer requests submitted to OCS, with fiscal
year 1966 having a high of 133 compared with fiscal year 1968,
which had a low of 41. Special requests prepared manually
by SIM for the same period average out to 178 reports, with
a high of 258 in fiscal year 1964 and a low of 125 in fiscal
year 1969.
** It must be said that with the computer systems, it is pos-
sible to edit most of the inputted data to either reject
incorrect data or to surface it to the user. This valuable
control was not available with the old EAM systems.
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work order, become completely separated from the operator of
the computer who is producing the request. With old EM
system, the man who wired the board (set up the program) for
an IBM card report request was usually the one who operated
the equipment that produced the report, and therefore, he
dealt directly with the requestors concerning questions,
changes, or other problems. The compartmentation resulting
from specialized fields in ADP was not present in the old
system; but although the old system was far more flexible,
it was not as fast or as accurate as the new.
Although the responsibility for the statistical reporting
and record keeping was traditionally assigned to a Staff-level
function* -- the Personnel Studies and Procedures Staff, the
Research and Planning Staff, and the Plans, Research, and
Development Staff -- the authority at this level was influ-
ential in effecting changes, in acquiring personnel statistics
and related information, and in 'levying report requirements
on the Machine Records Division. When the Statistical Re-
porting Branch was made a part of Records and Services Division
on 29 May 1954, some of this influence and authority was
lost.
* From 21 December 1950 through 28 May 1954.
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F. Significant Reporting Requirements
The Statistical Reporting Branch, as it was established
on 29 May 1954, included a position for a Statistical Drafts-
man, which resulted in SRB having its own 'graphics shop."
Of the various types of visual aids that were prepared, the
DDS's Illustrated Statistical Chart Book was the most complete
and useful. It was initiated in 1954, and it contained various
statistical tables with accompanying graphs. These tables
and graphs were up-dated early each month and returned to
Colonel White, the DD/S, for his use. The cover of this sta-
tistical book was later changed; it was black in color and
referred to as the "Black Book."
In 1961 a duplicate "Black Book" was prepared for the
Director of Personnel, and in 1962 another copy was prepared
for SRB. In fiscal year 1965 still another copy was prepared
for the Chief of the Personnel Operations Division, then
All four Black Books were discontinued after
December 1965; but in August 1966 the D/Pers book was rein-
stated, only to be discontinued in fiscal year 1969.
SRB provided graphics work to the many components within
OP and, at times, to some who were not in OP. On 1 August
1961 SRB lost its Statistical Draftsman position, and the
graphics service was gradually phased out. Today (1971) SRB
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limits its graphic service to the requirements from D/Pers
and DD/Pers.
In 1958 SRB was called upon to assist in a study of a
proposed CIA Early Retirement System. Much of the study was
based on the amount of overseas service that each Agency em-
ployee had. Overseas Questionnaires, Form l451,* were sent
to each Agency employee then on duty. x x These questionnaires
were returned to SRB, which was responsible for coding all
the overseas data. At that time employees were asked to re-
flect all overseas service regardless of how it was obtained,
but eventually only the overseas service acquired as an Agency
employee on Agency duty was accepted and used.
Once these overseas data were coded, rosters were pre-
pared for each Career Service by years of Federal Service
and by age groups. These lists identified people (1) who
were qualified to retire under the proposed early retirement
system, (2) who were not qualified, and (3) who might qualify.
Using the so-called Ellsworth Formula,*** percentages
See Figure 3, page 57.
** Early 1958.
At least 50 years of age and with 20 years of Federal
Service with 10 years with the Agency of which 5 years were
overseas service.
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. Figure 3
? bb
dig MPLOYES
INSTRUCTIONS
? .
Record of Overseas Service
Form 11+51 -
EMPLOYEE SERIAL NO.
RECORD OF OVERSEAS -SERVICE
DO
NOT
FOLD, STAPLE, SPINDLE, OR MULLATE
PCS- I DO NOT DATES SERVICE AS RZSPONSI3LC DO NOT
WHERE SERVICE TOY -2 U. S. G OTT.
CIVILIAN-I Vat ITE IN
^ THIS FOR.M MUST BE COM.. NO.) ?.10. Vit. MO. I YR.. 11...`. irt NJ.)
COLUMN WAS PERFORMED IENTER rnom TO MILITARY-2
OR AGENCY COLV::LN
'--,_..1_?21...,..\\\.-\\C\T,S,'.,:ii.W\s?! 32 , 23-27172-37?717-371-5.2-40 41 ???:.`&`??&?,\...k,..."7:7.175`..-McM.N. 42-41
ni-LETED WHETHER YOU HAVE
HAD OVERSEAS SERVICE OR NOT.
THE INFORMATION WILL. DE IN-
41*-Li.TDED.IN YOUR AGENCY ?DFFI-
cIAL RECORDS. SUBSEQUENT
WERSEAS SERVICE WITH THE
AGENCY %Jct. DE ADDED AS PER-
FORMED. ?
powit,1451 USEED1714)=US
?
1
? I ???
???
IF ADDITIONAL SPACE IS NEEDED. CHECK I ERE ED AND ASK FPR SUPPLEMENTAL CARDS
GUIPE FOR COMPLETION OF FORM 1451
? a
? * Please study your card Form 1451 and be
? sure you understand what is required before
you. fill Lt out.
?
o Be as accurate as possile, but the informa-
tion need not be certified. However, ad-
ditional information and documentation of
service may be required at a later date.
o If you have had nc; overseas service at any
lime, mark form "not applicable."
?
? list each increment of overseas duty 'per-
formed at any time on behalf of the U. S.
_ __.-Government j. and gve. the _ qpproximate
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25X1A
mai
End
MIN
25X1A
were computed on the number of projected eligibles who would
qualify for early retirement, assuming a total population of
10,000. SIB, working with the Plans Staff of OP, provided
projection figures based on five-year age groups and on a
year-to-year basis up through 1973 for males, females, and
by career service. These figures and other backup data were
sent to the , which did the actuarial studies
on costs.
All of these studies made it possible for the Agency to
establish its present CIA. Retirement and Disability System.
AS a feed-off from the accumulation of this overseas data
for the actuarial studies, an Agency Overseas Service Record
was established on magnetic tape and has been kept current
in the Agency's present reporting systems through the pro-
cessing of Form 1451a, Report of Service Abroad, which is
furnished by the Office of Finance to SRB for coding purposes.*
In meeting the requirements of Procedures for
Ceiling and Position Authorization, dated 14 November 1958,
SRB was given the responsibility for directing the activity
of the Machine Records Division in converting the old Tables
of Organization (T/O's) to the new flexible T/O's, for matching
* February 1971.
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personnel to their new positions and cutting more than 2,500
dummy personnel actions to assign employees to their proper
positions, and for providing flexoline strips (1/2" x 8")
with position information to be used in the Kardex File main-
tained by the Office of Personnel's Position Control Section./
As of 30 June 1959 all the Agency offices had been converted
to the Flexible T/O concept, which is still in use.
In order for the various career services to comply with
SRB provided to the Salary and Wage Division sta-
tistical data on each Career Service, reflecting all the
changes in grades during calendar year 1959 (initial report),
showing the number of reassignments in and out, accessions,
separations, promotions, and demotions. These statistics were
to be used by each Career Service in preparing their fiscal
year 1961 Career Service Staffing Authorization. Later the
CSSA 'became the Career Service Cumulative Processed Changes
by Grade and was prepared quarterly until 1969, when it was
scheduled on an end-of-fiscal-year basis.
Another recurring report, the CSGA, Career Service Grade
Authorization, had been for some time the responsibility of
the Salary and Wage Division of OP; but it was placed under
SRB's responsibility in fiscal year 1964.2Y This is a monthly
report prepared for each Career Service, and it determines
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the promotion heaaroom for each grade within the Career Serv-
ice. It is a very important management tool and is constantly
used by the Heads of Career Services in their promotion exer-
cise.
The Manpower Analysis Numbering System (MANS) was started
in 1963 by the Office of Planning, Programming, and Budgeting
(OPPB) and was completed in mid-1964. This system was estab-
lished to identify by codes the functional activity, category,
and sub-category of all the civilian positions in the Agency.
The MANS Code is six characters long and is broken down
as follows:
Functional Activity Code -- Two numeric digits that iden-
tify the Functional Activity
of the positions; for example,
Overt Collection, Covert
Collection, Technical Col-
lection, etc.
Category Code
Sub-Category Code
-- Two numeric digits that iden-
tify the various categories
under the Functional Activity.
^ Two alpha characters that
identify type of category in
which position title belongs
and are as follows:
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EA -- Professional Staff Posi-
tions
EB -- Technical Staff Positions
EC -- Technical Communications
Positions
ED -- Clerical Staff Positions
EF -- Professional Communications
Positions
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WE -- Wage Board Positions
FA, FB, FC, FD, FF Military
Position*
GA, GB, GC, GD, GF -- Contract
Position*
The MANS System was initiated by OPPB to assist its
budget people in costing out the various Agency activities;
but once the system was established it was not used for this
purpose and was set aside by OPPB. After all the positions
were given a MANS Code, OP began to use the sub-category code
to identify and account for employees and positions (based
on the occupational codes) by these sub-category codes:
Professional, Technical, Clerical, Communicator, and Wage
Board.
The MANS reports were established in fiscal year 1965,
and little by little these sub-category codes were appearing
as a major sort item. Like the Career Designation that was
implemented in May 1953 and caused a tremendous increase in
reports, these sub-category codes were having a similar effect.
The activity codes were not being used, however, and as of
1 October 1970 they were no longer being inputted with the
addition of a new position.**
* Denotes the same sub-category breakdown as above, EA
through EF.
** Az of this writing (February 1971) there appears to be a
renewed interest by OPPB in the MANS system.
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The sub-category codes were useful control items and
established a standardization and categorizing of employees
and positions as to whether or not they are professional,
technical, communicator, or clerical types. Before fiscal
year 1965 these categories were usually based on grade breaks;
for example, GS-06 and below were normally considered as
clerical and GS-07 and above were considered professional.
The requestor of a breakout of clericals or professionals
would determine the grade breaks to be used in categorizing
the people. The use of this sub-category coding system will
tend to increase in future reporting. Although the MANS system
did not fulfill the main reason for its creation, much value
was derived from a portion of the system (the Sub-Category
Code).
Neither the Agency nor OP were as fortunate in fiscal
year 1965 when the Bureau of the Budget requested that the
Agency control its average-salary level. To meet this re-
quirement OPPB requested the Office of Computer Services to
establish through OP the controls necessary to maintain the
established average-salary levels. After many meetings with
OPPB, OCS, and OP, a system was implemented; it was referred
to in two ways: The Average Salary Report and the Career
Service Budget Authorization (CSBA) -- which was based on
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criteria similar to those of the CSGA (Career Service Grade
Authorization) except that the CSBA was based on an overall
total of career services* within a Directorate's responsibility
and not on the individual career service** as was the CSGA.
The programming effort that went into this CSBA was
complicated and involved. It was one of the most difficult
programs that has ever been written by OCS for OP. OCS com-
pleted the programs in time to distribute the CSBA to each
GCS by June 1965 and monthly thereafter until 31 July 1966.
Although the GCS's used these reports, it was left up
to each individual career service to maintain its established
average-salary level. It was a very difficult control to
maintain, and by 6 August 1966 it was discontinued by OPPB
after the Bureau of the Budget approved the Agency Budget for
fiscal year 1967, which established a separate allowance for
personnel compensation that superseded the average-salary
ceiling control.
As of 22 September 1970 a hand tabulation by SRB showed
that the Office of Computer Services was producing for use
* Referred to in OP as the Grandfather Career Service level
(GCS).
** Referred to in OP as the Fa:ther Career Service level (FCS).
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by the Office of Personnel, 654 reports; in addition SRB was
preparing 55 reports manually for a total of 709 reports, of
which 616 were for SRB (see Attachment S).
As previously mentioned in this history, there have been
many causes for this increase in the number of reports, but
in most cases the increase has not always been caused by new
data. It is usually the same data that are present in various
existing reports, but the data have been arranged differently,
thereby creating a new report or reports. Also, in order to
include additional information, it is often easier to estab-
lish a new program than to revise an existing one. Sometimes
identical data are needed in a special way by one customer
and in another way by another customer, even though the totals
on the report remain the same -- for example, a grade distri-
bution by office versus a grade distribution by headquarters
within the same office.
In the past it has been very difficult to limit the
number of reports, and it is hoped that the future capabil-
ities of the third-generation computers will eliminate the
need for so many different reports; but the size of reduction
will be directly related to the query capability of the new
system. If the customer is assured that he will be able to
obtain data whenever it is needed, then hard copy reporting
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requirements will be reduced considerably.
Since late in 1960, Automated Data Processing has been
extensively introduced in the statistical control and reporting
of Agency data on personnel strength and related subjects.
This development required considerable effort and raised many
problems, the resolution of which have not always been inex-
pensive. A consequence of the acquisition of the computerized
capability to control personnel data statistically has been a
very great proliferation in requests for the manipulation of
the data to answer additional types of questions. While
management has been provided with more powerful tools, it is
difficult to assess with any precision what the cost has been
or whether the outlays have always been worth the time and
expense.
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III. Qualifications Analysis Branch*
A. Introduction
From the beginning of the Agency there has been a neces-
sity for an inventory of the qualifications of selected appli-
cants and employees. The degree of interest and effort devoted
to this activity has varied, depending on the demands of higher
management. In the beginning there was a very elementary IBM
punch card system. This was replaced in the early 1950's by
a better system adapted from one which was then in use at the
Bureau of Naval Personnel (BuPers). The BuPers system had
its beginning in 1940 with the National Roster of Scientific
and Specialized Personnel -- the first attempt to reduce quali-
fications information to IBM punch cards for later retrieval.
In the mid-1950's when Agency recruitment activity diminished,
so did the maintenance of the Qualifications Inventory. Be-
cause no personnel were being assigned to this function the
maintenance continued to fall behind and coding was stopped
in 1960.
A comprehensive computer based system was started in
the early 1960s. Pre-Agency education and experience were
was the principal author of this section.
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coded first, and this was substantially completed by the end
of 1965. It was then necessary to develop a multipage form
with which to circularize the Agency to obtain information
on Agency work experience and to update other biographic
and qualifications information. In early 1966 the form was
approved by the Personnel Advisory Board -- chaired by the
Director of Personnel and with members from all of the Direc-
torates.
Beginning in March 1967, in accordance with the schedule
for the return of fitness reports by grade group, the Agency
was circularized and the forms returned. As explained sub-
sequently, DDP did not fully participate in the qualifications
inventory until 1969. The form was pre-printed by the computer
and contained -- in addition to serial number, name, and
grade -- the individual's degree background, and overseas
service for verification. By early 1970 substantially all
forms had been returned and the initial coding had been com-
pleted. Beginning in 1968 the Qualifications Inventory was
being maintained on an annual basis through the use of a
one-page form.
With the establishment of the Career Service system
in the early 19501s and the actions taking place in Career
Service Boards, it soon became evident that a systematic
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method of summarizing employees backgrounds was highly de-
sirable. A task force was established, and it developed the
Biographic Profile. Production of the Profile was slow until
it was decided to include the two latest fitness reports
rather than extract data from the fitness reports. The Pro-
file has proven very useful for those occasions where a par-
ticular group of employees is being considered for promotion,
reassignment, honor awards, training selection, or other
activity.
B. Mission
The Qualifications Analysis Branch, or QAB as it is
called, is the only Agency source for comprehensive biographic
data on all employees. QAB prepares biographic profiles of
three types:
1. Biographic Profiles (Form 1200). One copy is pro-
duced on each Agency employee and the original is
retained in QAB (see Attachment T). Xerox copies
are provided, as needed, to authorized Agency
officials. This is the "Standardized" Profile,
representing all but a small proportion of all
profiles produced in QAB.
2. Blue Book -- "Principal .Officials of CIA."22/ This
was prepared and published three times for the DCI
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(1961 or 1962 -- date unknown -- October 1963, and
April 1965). Initiated during John Cone's tenure
and published only on request, this Blue Book has
not been requested since Richard Helms became DCI.
Copies were also distributed to the Deputy Director
for Support and the Director of Personnel.
3. Special Biographic Profiles on demand (sterile)
for use outside the Agency. (See Attachment U.)
QAB reduces biographic data and information on special
skills, language proficiency, area knowledge, and the like
to codes susceptible to computer manipulation, storage, and
retrieval. This permits computer selection of personnel with
any qualifications or combination of qualifications needed
to meet the personnel requirements of Career Service Boards
and Operating Officials. These
selected applicants.
Upon request QAB provides
data cover all employees and
lists of personnel or appli-
cants having needed qualifications identified by computer
retrieval or by manual search of special computer-produced
registers as those best suited to meet the need. Frequently
such lists are accompanied by Biographic Profiles (Form 1200)
of the eiployees so identified, in order to give additional
assistance in the selection process.
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Clear-text reports are prepared for some purposes.
These are for users outside QAB, and they will be described
in Section G.
C. The 1947 Qualifications Coding System
The Agency's first centralized Qualifications Coding
System was begun in early October 1947 by 25X1A
under direction of
Wi
lliam Joseph Kelly, the Personnel Direc -
tor.3V The Machine Records Unit of the Reference Center,
under the Executive for Administration and Management (which
was later called OCD, OCR, and now Central Reference Service
of the DDI), provided IBM equipment and services./
25X1A provided the IBM support./
The purposes in establishing this early system were:
1. To screen qualifications of employees and applicants
needed for current jobs, minimizing manual selection
and cutting out unnecessary handling of Official
Personnel Files;
2. To permit comparisons of salary and classification
among Agency components for similar jobs;
3. To create machine prepared reports (strength re-
ports, and the like);
4. To permit selection of qualified applicants who had
previously applied when there were no openings
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suited for their specialties; and,
5. To create, on the basis of a schedule for review
and destruction (by coding date of application),
a method for determining which applicant files
should be destroyed.
The early system recorded each employee's serial number,
Agency assignment (a two-digit code representing his compo-
nent), and as many three-digit occupational qualification
codes as were needed to reflect his major fields of expertise
or work experience. The occupational codes were abbreviations
of the US Civil Service (CSC) Occupational Codes. Applicants
were coded entirely in the three-digit occupational codes; they
were sorted alphabetically (no numbers assigned).
The serial numbers and two-digit component codes are
still in use, the former with enough zeros prefixed to make
six-digit numbers; the two-digit series has undergone many
revisions to accommodate organization changes, but both have
been in continuous use since 1947.
The advantages of the 1947 system were:
1. Extreme simplicity, enabling rapid coding by com-
paratively inexperienced clerical personnel.
2. Effectiveness and ease of operation requiring only
one IBM card per employee or applicant.
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3. Greatly reduced traffic in Official Personnel Files.
4. Provision of a rational basis for deferring con-
sideration of well qualified applicants, permitting
reconsideration when jobs opened opportunities (and
needs) in their specialties.
5. Provision of a basis for setting a schedule and
"automatic" call up of applicant files for des-
truction or retention (based on coded date of
application).
6. Great savings in time and money compared with any
existing alternatives.
The disadvantages of the 1947 system were:
1. Titles were often improperly assigned, producing
erroneous results (as only titles had been coded).
2. There was no consistency in criteria for determining
which applicants should be coded; the result was
that many were coded who should not have been and
some were not coded who should have been.
3. No provisions were made for maintaining the data
put in the system.
4. The system did not record many qualifications for
which subsequent experience indicated a pressing
need -- education, area knowledge, language skills,
and hobbies.
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? Coding of employee qualifications was completed in
late 1950 or early 1951.* As far as is now known, this sys-
tem continued in use until 1952.
D. The 1952 Qualifications Coding System
The 1947 Qualifications Record System accomplished its
goals while the Agency was small and somewhat informal in
its administrative arrangements. The impact of the Korean
War and other events, however, caused the Agency's responsi-
bilities to the intelligence community to expand rapidly.
The Agency's consequent growth required a more comprehensive
and versatile qualifications record system. This need had
been officially recognized, and it was acted upon in January
1952,
By 31 January 1952 the Personnel Studies and Procedures
Staff had established a new Qualifications Coding System./
The coding of deferred applicant files and of employee quali-
fications was begun by a Task Force of 20 employees under
the direction of of the Personnel Studies and
Procedures Staff. By July of 1952 more than 5,000 applicant
lvImfof.rDoleTiputy Director, Administration dated 14 Febru-
ary William J. Kelly, Personnel Administration,
"Personnel Activities from 1 October 1950." This memo cited
completion of employee coding in this period.
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files had been coded. By 18 December 1952, 6,181 applicant
25X9 files, employee files, and consultant files had 25X9
been coded.LE/
In July 1952 the Personnel Studies and Procedures Staff*
developed the "Personnel Qualifications Questionnaire" (Form
37-152), which was distributed to all stateside employees.
This form, completed and returned, provided the data needed
to record employee qualifications (see Attachment v). Appli-
cants were coded from information in applicant files --
Personal History Statements (PHS) and Civil Service applica-
tions (Form 57's).
The Applicant Register Section Lg./ of the Service and
Control Branch of the Personnel Procurement Division was
established in August 1952 and represented the first formal
Agency organization with responsibilities for a centralized
Qualifications Record System (although only for applicants).
In a limited sense, this unit could be considered the "ances-
tral home" of the Qualifications Analysis Branch. Although
officially designated "Applicant Register Section," this unit
was known by the name "Applicant Coding Section" by all who
* At some time in 1952 this staff was redesignated "Research
and Planning Staff."
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used its services and in all correspondence of this period.
This section, headed by selected applicant
files to be coded, coded those so selected, maintained the
applicant Register, and serviced requests from operating
officials for applicants qualified for current openings.
In July 1952 the Task Force was disbanded; applicant
coding was turned over to the Personnel Procurement Division,
and Employee Coding was turned over to the Placement Officers
of Personnel Division (Overt) and Personnel Division (Covert).
The 1952 Qualifications Coding System was an EAM (IBM)
card system employing two cards for each applicant and three
for each employee. To minimize the time required for EAM
card sorting to locate employees possessing two or more spe-
? cialties, employee card sets (three cards) were expanded to
seven, with the same data arranged in different fields. Thus
if an employee were wanted with a specific language combined
with a specific occupational specialty, the machine needed
only to search the pre-selected language series (cards) for
the desired occupational specialty. By June 1955, when the
EAM system arrived at its greatest extent of utilization,
this required
IBM cards. Of the Agency's staff
25X9 employees, all but1111 were coded; and of this latter group,
25X9 1111 were excluded: for security reasons. Thus more than
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95 percent of the staff employees were in this system.
The following information was recorded on each employee
(E), applicant (A), or both (B):
1.
Serial Number
(B)
2.
Name
(B)
3.
Date Coded
(B)
4.
Office
(E)
5.
Date of Birth
(B)
6.
Sex
(B)
7.
E.O.D. Date
(E)
8.
Citizenship
(B)
9.
Extent of Education (1 digit
9 Levels)
(B)
10.
Bachelor's Degree
(B)
Major
College
11.
Master's Degree
(B)
Major
College
12.
Doctor's Degree
(B)
Major
College
13.
Year Highest Degree Received
(B)
14.
Other Education
(B)
School
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15. CIA Work Experience
Current Position and Two Others
16. Special Work Experience (If Unique
in a Way Making for Potential
Value) (B)
17. Steno Skill (B)
18. Licenses (B)
19. Hobbies, Sports, Etc. (B)
20. Physical Handicaps (B)
21. Overseas Status: Intent and
Ability to Go 0/S (E)
22. Residence (State) (A)
23. Grade (B)
24. Military Status (B)
25. Civilian and Military Experience
(Primary and Four Next Most
Important) (B)
26. Foreign Languages (Up to Five) (B)
27. Area Knowledge (Up to Five) (B)
28. Source of Application (A)
29. Date of Initial Contact (A)
30. Position Best Suited For (B)
31. Reason Not Employed (A)
32. Date of Last Contact (A)
33. Card Number (B)
(E)
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Coding was done in a hybrid system of one- to six-digit
codes (based on type information coded) from the following
sources;
1. US Civil Service Commission Codes (often modi-
fied to fit Agency needs). These were used to
code government experience, including Agency
experience.
2. Army, Navy, Marine Corps, and Air Force Military
Occupational Specialty codes (MOS). These were
used for coding military experience.
3. Occupational codes from the Labor Department,
"Dictionary of Occupational Titles," or "D.O.T."
codes. These were used for coding non-government
experience.
4. Occupational codes from the National Science
Register. These were used for coding scientist
non-government experience.
5. Internally generated codes for unique skills,
knowledge, hobbies, language, and so forth.
Operating officials, through placement officers, fre-
quently requested "Machine Runs" for locating employees or
applicants with the specific qualifications needed. Most fre-
quently these combined a need for proficiency in a particular
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language with expertise in a particular substantive specialty
such as economics, electronics engineering, and the like.
Approximately 90 percent of these "Machine Run Requests"
were serviced by manually searching Qualifications Registers
(16 in the 1953-56 period). These registers were lists of
employees arranged in basic qualification groups. Updated
registers were received periodically.
For the other 10 percent of Machine Run Requests (not
serviceable by manual search of the 16 Qualifications Regis-
ters), the Machine Records Division of the Comptroller's
Office provided listings of employees or applicants possessing
the coMbinations of qualifications requested. Whether they
were accomplished by manual search or by IBM equipment, the
requesting officials received listings of those employees
or applicants possessing the qualifications in demand. In
most cases the best qualified candidates were winnowed from
the lists by reviewing the Official Personnel Files. Oper-
ating officials had the option of reviewing the selected
files or accepting those selected by QAB.
A Management Survey of QAB conducted in June 1955 based
its manpower recommendations on the work being done; it cited
the number of machine run requests as averaging 27.5 per
month, 330 per year; it also stated employee coding to be
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virtually complete (see Attachment W). All but 570 employees
were then in this system; hundreds of employees were excluded
because of security considerations.
The Qualifications Coding Program received active sup-
port from the Director of Personnel during these early years.
The Personnel Director George E Meloon, had initiated the
original system and now issued numerous OPM's and CIA notices
citing the responsibilities of all, exhorting all personnel
officers and operating officials to use the QAB facility
conscientiously, and citing its potential for improving the
Agency's personnel administration.LL/ For most years during
the 1950's the number of machine-run requests averaged several
hundred per year, notwithstanding some very severe limita-
tions and shortcomings that were well known by 1955.
One of the more important achievements of this system
was its 1955 response to an urgent requirement by the DCI
(Allen Dulles) for many linguists to conduct a communications
monitoring and intelligence operation. QAB identified 1,100
employees with the language skills needed (most requests are
to fill one job).
In 1956 the Office of Communications (OC) had a crash
program requiring rapid expansion. QAB retrieved over Wo
applicants with qualifications related to the OC requirements,
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and approximately fifty were selected and processed for
employment.
Placement Officers of both the covert and overt Per-
sonnel Divisions continued coding employee qualifications
until November 1953. Each division serviced its own "Machine
Run Requests" with Employee Qualifications registers provided
semiannually by the Machine Records Division of the Comp-
troller' s Office.
In November 1953 there was a general reorganization
of the Personnel Office, and the Control Branch was born as
part of the new Placement and Utilization Division. The
Control Branch was the first formal organization with respon-
sibility for the entire qualifications coding program. The
Placement and Utilization Division, the creation of which
coincided with the elimination of the separate overt and
covert Personnel Divisions, was effected by a TIO change
dated 18 November 1953, which was effective 22 November 1953.
The Control Branch acquired the qualifications coding respon-
sibilities previously assigned to the Placement Branches of PD
(0) and PD (C). It also acquired the responsibilities (and
some personnel) of the Applicant Coding Section )J...2, as it
was always called, although it was designated on all official
T/O's as the Applicant Register Section (Personnel Procurement
Division).
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25X1A
25X1A
mei
This reorganization coincided with the Agency's moving
of several components into the Curie Hall area on Ohio Drive.
The employee coding had been done in North Building (PD/O
Placement Officers) and I, J, K, and L Buildings (PD/C Place-
ment Officers). Applicant coding had been done first in
North Building and then at 2210 E. Street.
directed the Control Branch from its beginning (22 November
1953) until the first week of May 1955, when he began pro-
cessing for an overseas reassignment. On 5 December 1954
the Branch had been redesignated the "Qualifications Analysis
Branch."Ly This name has been retained from that time to
the present.
25X9
By the end of 1955 more than pplicants had been
coded in the system (see Attachment X). Many had applied in
the late 1940's (most in the 1950-53 period). In early 1955,
updating the applicant qualifications was begun. Form 193
(Personal History Supplement) was mailed on a schedule based
on original date of application. The information on these,
returned to QB, was reviewed, and the EAM (IBM cards) were
either updated or the case was purged as being no longer
suitable. In 1955, applicants were purged; more than
new applicants were coded, however, leaving an inventory
of who had replaced
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as Branch Chief in May 1955, was reassigned on 20 November
1955 and was succeeded by
E. The 1956 Revision
In October 1956 the decision was made to make some
needed revisions in the Employee Qualifications code struc-
ture. The Civil Service Occupational Codes were modified by
the Salary and Wage Division of the Office of Personnel by
adding a sixth digit, which gave additional capacity to show
distinctions in each group attributable to the inherent dif-
ferences between CIA jobs and those of "old-line" agencies.
The resulting handbook was incorporated in the QAB Employee
Coding Manual, displacing the previous five-digit Civil Serv-
ice Codes used to reflect Agency experience (rather poorly
for many DDI jobs -- abominably for DDP jobs). A few addi-
tional codes were added in several other categories of in-
formation being coded.
Because all new codes added were compatible with the
existing code structure, another change made at that time
was more important in terms of consequences. That was the
decision to discontinue use of all Employee Qualifications
Registers for servicing Machine Run Requests. The intent
was to save effort and time by producing an EAM listing of
qualified candidates in response to each request, thus
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discontinuing the Qualifications Register.
Neither the amended codes nor the decision to service
requests by EAM represented a change in the system. The
coding structure had been amended many times, and approxi-
mately 10 percent of all requests had been serviced with
EAM listings.
At this time, however, a decision was male to revise
the EAM card format, with more cards per employee and a
different information arrangement on the EAM cards. This
decision was extremely costly, and it had unfortunate conse-
quences that were not overcome until mid-year of 1965 when
the RCA 501 System became operational.
Because of a different EAM card format for employees
coded before October 1956 and for those coded afterward, there
were in fact two separate and incompatible systems in use.
Each Machine Run Request (Employee) had to be serviced manu-
ally for pre-1957 information and by EAM for the remainder.
Because of lack of maintenance on the pre-1957 cases, the
information on those employees became increasingly obsolete
with the passage of time. Approximately
cases 25X9
were coded in the new arrangement by early 1959. Allowing
for attrition, the "new", system never included more than.
25X9 percent of the Agency's employees at any time.
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If the 1956 revisions had been carried out quickly,
with regular updating thereafter, and if machine time had
remained available when needed, the results would have re-
flected significant improvement. The improvement would have
been chiefly the labor saved in QAB -- identifying and listing
qualified candidates by searching the Qualifications Regis-
ters. The capability of "quick" response to Machine Run
Requests would have suffered during periods when IBM machine
services were unavailable. This would have been an increasing
problem in the 1958-62 period when EAM personnel were being
intensively trained in EDP (Electronic Data Processing)
techniques.
The 1956 revisions did not affect the main features
of the 1952 system. The 1952 system had a more comprehen-
sive capability than any government or industry EAM Qualifi-
cations System in existence, and by a very wide margin. The
hybrid coding structure described previously* permitted this
diverse and large capability, albeit not without some vexing
problems, confusion and inconvenience caused by its depen-
dence on code structures from five external sources.
The "weakest link" in the 1952 system was its reliance
* See Section D.
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on the CSC Occupational Series Codes. These were ineffective,
especially for DDP qualifications. Of even greater impor-
tance was the DDP emphasis on hiding, for security reasons,
the skills of its employees. Nevertheless, the DDP has been
the most frequent of all QAB customers.
Another serious shortcoming was the use of Military
Occupational Specialty Codes. It was impossible to keep up
with changes, some of which were of massive proportions.
This also created an unnecessary multiplicity of codes having
essentially the same meaning. For example, to retrieve can-
didates for a radio operator job one would have to search
through Air Force, Navy, Army, Marine Corps, Coast Guard,
Merchant Marine, and other fields as well -- such as radio
amateurs -- to identify all employees or applicants with the
same one skill.
Very little experience recorded in the EAM System after
1956 was ever updated. The data became increasingly obsolete.
Adding to these considerable woes, the Branch underwent an
abnormal series of personnel changes. In addition to in-
ternal changes of analysts, the branch had four chiefs in
quick succession, excluding who was reassigned
in June 1957: and
25X1A
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The Applicant Coding System was not affected, and the
1952 version was continued with some maintenance until 1959.
Maintenance consisted of deleting IBM cards on those no
longer needed or no longer available. Retention was deter-
mined by mailing Personal History Supplement Form 140-03 (for-
merly Form 193). Those not replying were deleted. Those
responding were updated or were deleted in instances where
information indicated no further suitability. In 1959 main-
tenance ceased; the coding of new applicants continued until
February 1966, when all to be retained were put in the RCA
501 system.
Merging the Biographic Profiles function in 1958 was a
natural and effective organizational evolution; but it added
problems since that program, too, had been having little
success in attaining a satisfactory production rate.
The major achievement during this period, one with
lasting benefits not only for Q,AB but also for the entire
Agency, was the modification of the language codes to include
tested levels of proficiency as measured by OTR (Office of
Training). This new language proficiency reporting was ac-
complished as a separate system (more correctly, a sub-system),
and was "machine" compatible with the 1952 system, the 1956
revised Employee Coding System, and with minor modification,
the present system.
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Agency Regulation
dated 10 July 1957, provided 25X1A
in part that: "The Director of Personnel with the collabo-
ration of the Director of Training will create and maintain
currently an inventory of the language competence of all
staff personnel. This will be accomplished initially by a
self-evaluation of all staff personnel on Form 444c, Language
Data Record, and subsequently by evaluation of performance
by means of the Agency's standard language proficiency tests,
conducted by the Office of Training."
QB recorded the self-evaluated data from the completed
Language Data Record, Form 444c (see Attachment Y). Upon
receiving from OTR the test results for language proficiency
claimed, QAB recorded the results in the Employee Qualifica-
tions System. This was done in a manner to show an accurate
and complete record of each employee's language skills,
showing level of proficiency for each language in reading,
writing, pronunciation, speaking, and oral comprehension
and whether the proficiency was claimed or tested.
The purpose of Agency Regulation was to initiate
the Language Development Program. This program established
the Language Incentive Awards, paying cash awards for speci-
fied achievements and maintenance of language proficiency
as determined by OTR. The byproduct was a vastly improved
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quantity of QB language proficiency inventory. This im-
provement continued until the cash incentives were abolished
in 1961. A gradual decline then set in, one that was quite
visible in the Language Qualification Section of the Employee
Qualifications Record System.
F. The Biographic Profile
The present system of Biographic Profiles (Form 1200)
was established by CIA Notice dated 4 February
1957. (See Attachment Z.) It is, as described in that
notice: "A standardized digest of basic factual and evalu-
ative data necessary for the day-to-day personnel adminis-
tration of the Agency's people. It is designed for use in
headquarters by supervisors, operating officials and Career
Services in formulating and implementing decisions concerning
the utilization and development of the individual." Pro-
duction of these standardized Biographic Profiles was begun
in February 1957 and has continued to the present with only
one major change in content and form -- revision of Part 2.
Biographic sketches or abstracts for some of these
purposes had an earlier origin, and they appear to have been
the outgrowth of a Career Corps concept first expounded by
General Walter Bedell Smith, the DCI, in March 1951. From
?
this early expression of intent, a Career Service Committee
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was formed to pursue the development of an Agency-wide career
program. The Career Service Committee developed a Career
Service Program which was approved by the DCI on 13 June
1952.12./
On 19 June 1952, the Assistant 25X1A
Director for Personnel, submitted a T/O request which, when
approved, created a Career Management Division of four posi-
tions in the Personnel Office. A Career Development Staff
of eight positions was created at about the same time in
the Office of Training. On 13 August 1952 25X1A
submitted a T/O Request, approved by the Deputy Director
(Administration), for the establishment of the Career Develop-
ment Staff of 12 positions, which formed "an amalgamation
of present Career Management Division of the Personnel Office
and the present Career Development Staff of the Office of
Training."
25X1A Agency both dated
7 July 1954, established the basis for implementing the
25X1A Career Staff and the Career Council and Career
25X1A Services The Office of Personnel requested
a T/O for a Career Service Staff of nine positions to create
the work force needed to support the Career Staff Program.
This request was approved by the DD/A on 3 August 19 54./2./
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The Career Service Staff had the following responsi-
bilities in support of this program:
1. Review records (personnel folder) of eligible
employees, with particular emphasis on the three-year
period of actual service with the Agency.
2. Secure information or clearances as follows:
a. Office of Training -- record of assess-
ment and training given the employee.
b. Security Office -- security clearance.
This is necessary because a security problem
may have been in the process of settlement.
c. Medical Office -- clearance particularly
with reference to any psychiatric aspects of the
employee's medical record.
3. Prepare notice to employee notifying him of
eligibility to apply for Career Staff membership.
4. Review employee's application and/or memo-
randum, if any.
5. Prepare brief for consideration by Panel of
Examiners.
6. Place case on agenda for Panel meeting and
call meeting. (Panel meetings occurred daily.)
7. Attend Panel meeting and record actions.
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NMI
8. Prepare and forward the Panel's recommenda-
tion to the Selection Board.
9. Prepare official notice informing the em-
ployee of the action taken by the Selection Board.
The Career Service Staff had the additional responsi-
bility of providing administrative and professional support
to the Career Council and Honors Awards Board.
The "brief" referred to in paragraph 5 above consti-
tuted the first Agency "Biographic Profile," and the work
done in preparing these no doubt established the need as well
as' the criteria for a standardized version.*
The "mass production" of profiles begun in 1957 was
planned in 1956 and scheduled for completion by 31 December
1958.12/ Unfortunately, very cumbersome procedures were set
up for producing, processing, and getting necessary approvals
before accepting the finished product as an official docu-
25X9 ment. As a consequence only profiles were completed
in the first 19 months of operation; at the end of 1958 the
original goal was less thanillioercent fulfilled, and no
adequate planning had been done for updating profiles already
produced. The initial planning did, in fact, call for
25X9
* No sample of these "briefs" could be found for inclusion
here.
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25X1A
updating to be accomplished by QAB. This was wonderful in
theory because both QAB's listings in response to Machine
Run Requests and Selection Staff's Profiles (their only
products) shared most uses and fulfilled wants from the same
"customers."
During the late 1950's, however, QAB and the Selection
Staff each had the same major problem -- inability to gener-
ate a production rate large enough to cover the loss of
product by attrition while creating records for employees
still on duty and all incoming new employees. Neither unit
was updating its product, and from one reporting period to
the next each was making only insignificant gains toward
accomplishment of long-term goals. This was the state of
affairs when in September 1958 the Selection Staff (called
the Selection Branch in some documents) was transferred from
the Deputy Director for Planning and Development
) to the Personnel Operations Division.* The Selection
Staff was physically absorbed into QAB immediately, although
it officially retained the title of "Selection Staff" until
* OPM 1-140-4, 19 September 1958, Paragraph (b) transferred
the "Functions and Staff of the Selection Staff for the
Deputy Director of Personnel for. Planning and Development
to the Personnel Operations Division."
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formally integrated with QAB on 3 April 1959.*
This merger was a natural stage of evolution because
of the shared purposes, the customers served, and the fact
that both required extracting (or abstracting in the case
of Profiles) information from Official Personnel Folders.
At the time, however, it was a marriage between two unsuc-
cessful "partners," neither with any hope of achieving its
goal. The resulting organization had only two jobs more
than were in Selection Staff from 1957 to the merging with
QAB. As should have been no surprise, the "new' QAB did not
immediately solve any problems related to the inadequate
production rate for coding employees or for creating initial
Biographic Profiles on Agency employees. In truth the situ-
ation on this point became much worse, and in addition to
existing problems the Branch underwent numerous changes among
key personnel in the 1959-62 period.
In late 1960 the decision was made to eliminate the
cumbersome and unnecessary procedures required to process
completed profiles before officially recognizing their va-
lidity. The decision was also made to change completely
Part 2. Up to this time each Biographic Profile Analyst
* .110 change No. 441, Salary and Wage Division, Office of
Personnel, effective 3 April 1959.
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had to form a subjective impression of each Fitness Report,
a type of writing that was itself highly subjective -- thus
leaving the Biographic Profile user with no alternative but
to form a subjective judgment of a subjective evaluation of
a subjective opinion. The change consisted of substituting
several of the most recent Fitness Reports; these had been
the chief source of information used for the subjective
Part 2.
These two changes greatly simplified the Biographic
Profile and probably constituted a vast improvement in
quality as well. From January 1961 to the present (1971),
the production rate justified the program. From a cumulative
25X9 total of produced to that time with none updated, the
annual production has been well over per year ever
since (counting updating). Production reached a peak in 1966:
25X9 updated. The results were that by
the end of fiscal year 1966 coverage was for the first time
fairly complete, and from then on the greatest needs have
been to keep up with attrition and to try to reduce the aver-
age time between updatings. Progress is still needed, but
the definite trend toward improvement has continued since
1961.
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G. The RCA 501 Qualifications Record System
When the Selection Staff, under the Deputy Director of
Personnel for Planning and Development, was transferred to
the Personnel Operations Division on 19 SepteMber 1958,
25X1A functioned concurrently as Chief of the Selection
Staff and as Acting Chief of QAB until her reassignment in
early 1959. In DeceMber 1958 or early January 1959
25X1A was assigned to QB as Branch Chief.
was detailed to QAB in January 1959 and was officially re-
assigned as Deputy Branch Chief on 3 April 1959 when the
Branch was reorganized to include the Selection Staff. The
new organization's makeup favored Biographic Profile pro-
duction at the expense of qualifications coding. This may
have reflected an official decision to abandon the unsuccessful
EAM system for Employee Qualifications. That was the result
in any case.
The capabilities of the Employee Qualifications "system,"
already impaired by the necessity to use the incompatible
pre-October 1956 and post-October 1956 EAM retrieval methods,
suffered even further when employee coding was discontinued
in April 1960. The system was used to some extent for several
years. By midyear of 1962 its content was useless and it was
abandoned -- with no alternative in sight. Until 1965 Machine
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Run Requests for employees were serviced by searching Bio-
graphic Profiles manually to identify employees meeting the
requestors' needs. This was a very poor and incomplete
service; profiles on most employees had not been prepared
when this period began. By mid-1965 the RCA 501 System,
although far from complete, was by far the most effective
means available to service requests.
A machine run request of December 1962 provided a badly
needed jolt to the complacency of those who had ignored the
deterioration in QAB's facilities. The DCI John MoCone,
requested data on education achieved by the Agency's employees.
Pandemonium reigned. QAB had no capability for servicing
this request. At the end of 1962 QAB had only a slim shadow
of the capability possessed nine years earlier and thereafter
until 1958. More than any ever received by QAB, this request
illustrated the "Flap Potential" of ignoring too long the
importance of an effective centralized personnel data system
such as that available in QAB until 1958 and again from
September 1965 to this writing (March 1971).
Because the QAB 1952 system had been abandoned in 1960
(for employees) the DCI's request was serviced by abstracting
the needed information manually from Biographic Profiles
where available (probably 60 percent were available) and
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Official Personnel Files for the remainder. This job re-
quired a small army, which was recruited almost instantaneously
because of the requestor's eminence, imminence, and immanence.
A week later the DCI's request was answered, with a
statistical summary that was excellent in terms of effort
but with errors not characteristic of a more orderly system
producing such reports by EAM or computer tabluation.* This
report started an avalanche. Apparently it became fashion-
able for those in high places to want, as conversation pieces,
the most recent summaries of educational achievements of
employees in their, own components. There was a flurry of
such requests, which lasted into the spring of 1963. Perhaps
with the memories of this experience behind him, the Director
of Personnel began to evince real interest in the RCA 501
System, then under development for three and a half years
but with no official sanction.
25X1A
In January 1959, of QAB and
25X1A of the Machine Records Division of the Office of the
am
Comptroller began the development of the RCA 501 System. This
* Attachment AA provides samples of the categories of infor-
mation presented. The data are limited to Grades GS-13 and
wiz above. The complete copy of this educational summary is in
the documents file of the CIA. Historical Staff as background
information for this particular report.
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system was based on capabilities of high-speed EDP equipment
then coming into widespread use. In 1960 a generalized
description of the system to be employed had evolved. By
late 1962 most of the details of the RCA 501 System later
adopted were complete.
In late November 1962 coding of GS-15 and GS-14 em-
ployees, and some GS-13 employees, was begun for the purpose
of testing the new EDP system and its underlying ideas. By
the end of July 1963 nearly 4,000 employees' qualifications
had been recorded in the new system. Tests were made of its
effectiveness. The tests indicated that the system was feas-
ible. Most of the next year was needed to make revisions and
to create additional capabilities not already provided. This
task included a complete study of the world's major languages
and the development of a new language-coding structure meeting
the requirement of compatibility (for computer processing)
with the EAM system already in use. In June 1964 all language
data were successfully converted from EAM cards to the new
RCA 501 system. Because of the emphasis given to the reporting
of language proficiency during the Language Incentive Awards
Program initiated in 1957, the language data were nearly
complete for all employees. Consequently the language data
portion of the system was fully operational by 30 June 1964.
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For a five-year period (1959-6)-i-) there were usually
no more than two Qualifications Analysts available; sometimes
there were none. Emphasis had been on Biographic Profiles
and the development of the RCA 501 Qualifications Record
System. It therefore became imperative in late 1963 to ob-
tain the manpower needed to implement the new qualifications
system, which had been proved feasible.
Because of personnel ceiling restrictions, no staff
employees could be hired or assigned to QAB to assist in
establishing the new Qualifications Record System. When all
other efforts to get personnel failed, a Task Force of retired
annuitants was proposed. This idea was accepted, and on 29 Octo-
ber 1963 the Director of Personnel submitted a request for
approval of the RCA 501 Qualifications System and the hiring
of up to ten retired CIA annuitants to help establish it. On
29 January 1964 the Office of Computer Services (OCS) con-
curred in the need for and the feasibility of the proposed
system. OCS approved implementation subject to the condition
that the Agency would assemble and maintain a sufficiently
large and qualified work force to install and maintain the
system adequately. Final approval by the Deputy Director of
Central Intelligence was granted on 14 March 1964.22/
From 14 March 1964 to the present (1971) a Task Force
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of ten annuitants (in the continued condition of ceiling
limitations) has been authorized. Although ten annuitants
were needed, it was never possible to locate more than six
at any one time. By August 1964 two retirees had signed
contracts
, and the
first phase of the system's implementation began. Two more
contract employees were "signed on" by early January 1965
, a contract clerical em-
ployee needed to control the large flow of employee files).
Each new employee required about three months to become
familiar enough with the work requirements to code employee
pre-CIA experience effectively. An instruction pamphlet,
25X1A written bi in early 1964, was then -- and
still is -- used as the textbook for indoctrination and ref-
erence (see Attachment BB).
25X1A the fifth contract QAB analyst, was hired
25X1A
in July 1965, two months before
resigned. 25X1A
was an interesting 76-year-old "White
Russian" who had walked across Russia and Siberia in 1919
en route to his eventual "home" in CIA.)
By the end of September 1965 all employees pre-CIA
qualifications had been recorded in the new system, except
for a few whose files were never obtainable; most of these
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were Staff Agents in such sensitive positions that Central
Cover Staff would not release their files. This completed
the first phase of the program of installing the RCA 501
system.
The second phase, which had been planned to begin early
in 1966, was the coding of all Agency work experience.
25X1A the new Chief of QAB ?.Was reassigned 25X1A
in August 1965 -- developed the requirements and form to be
used in eliciting the information needed to record employees'
Agency work experience in the RCA 501 Qualifications Record
System. This was presented to the Personnel Advisory Board
in February 1966, was approved by the Board in April 1966,
and at that time was submitted to the Regulations Control
Staff. The Regulations Control Staff then decided the pro-
posal required full Agency coordination.
25X1A In June 1966 met with the Clandestine Services
Personnel Staff and representatives of the CI Staff to discuss
whether or not DDP experience would be included in the RCA 501
Qualifications Record System; the Clandestine Service response
was negative. The Deputy Director of Personnel,
25X1A MM, then discussed with the DDP Thomas Xaraxnessines,
whether or not DDP employees experience would be included in
the system. The decision was that DDP experience would not
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be included in the system. The DDP decided that the need for
such a step had not been established and that it was unknown
what requirements had to be met if the DDP were to be included.
Kar
ne
asked that the Office of Personnel reserve suf-
ficient capability for subsequent inclusion of DDP work ex-
perience in the system. This was done by reserving the proper
types and numbers of unallocated codes to permit later inclu-
sion of all DDP work experience.
The coordination proceedings took up all of 1966. In-
stead of coding Agency experience as planned, this time was
used to reach several goals intended for accomplishment after
coding Agency experience. One of these was the creation of
a clear-text capability. This was done by creating clear-text
definitions for all the codes used up to that time. These
were added to the system by the Office of Computer Services;
since then computer-produced clear-text reports have been
available when needed. One goal reached was the recoding of
all suitable applicants remaining in the 1952 system. Another
goal reached was the addition of many new codes to provide
means of reflecting types of qualifications not originally
known to be needed.
Several requests serviced in 1966 revealed the advan-
tages of this system over prior Agency systems. One such
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request resulted in a computer-produced statistical summary
of all languages known by DDI employees. The resulting table
showed a total of 75 languages known by 1,699 employees,
with the DDI totals for each language listed by DDI Office.
(See Attachment CC.)
Another request of interest was fron, then
assisting the Agency Public Relations Officer,
25X1A requested factual data on academic achievement and lan-
guage skills of all CIA employees. The resulting article
25X1A written by=, "Education and the Central Intelligence
Agency," was later published as part of a Department of Health,
Education and Welfare publication. (See Attachment DD.)
In early 1966 the Registrar of the Office of Training
submitted a request for identification of the Agency's best
candidates for President Lyndon B. Johnson's Graduate Program
in Systems Analysis. With the newly acquired computer capa-
bility, OTR's criteria were used to identify 38 DDP employees
eligible for the program and 64 employees from the rest of
the Agency. One employee was selected and attended Carnegie
Tech for the 1966-67 academic year. (See Attachment EE.)
In January 1967 the concurrence of all Agency Direc-
torates was finally obtained for recording the Agency exper-
ience of all employees except those of the DDP. Accordingly,
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Form 444j, Qualifications Supplement to Personal History
25X1A Statement, developed by was distributed to
all state-side employees and to overseas employees upon their
return to Headquarters. (See Attachment FF.) Page 1 of each
of these forms was pre-printed by computer to show for each
employee certain current official position data, the official
record of all Agency overseas service, and all known academic
College degrees from accredited institutions. Each employee
(except DDP employees) who received Form 444j verified the
pre-printed information on page 1 and on subsequent pages
(7 pages in all) provided the information needed to code
Agency experience and to update personal status items on
spouse, children, dependents, special accomplishments, and
hobbies. DDP employees provided the same information other
than for DDP work experience which they were instructed to
omit.
The completed statements of most employees had been
received and coded by the end of June 1969. In the meantime,
annual updating of Agency experience had begun. In fiscal
years 1968 and 1969 almost
Forms 444j were received
and coded. In fiscal years 1969 and 1970, nearly
employee cases were updated with information provided by
employees on Form 444n, Qualifications Update, the form
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developed -- also by -- for completion at
the date coinciding with that for annual Fitness Report
preparation. (See Attachment GG.)
In April 1969 the DDP Karen
reversed the 1966
decision to exclude DDP employee experience from the Qualifi-
cations Record System. In a large measure the reasons for
this change of heart can be attributed to
25X1A , a senior DDP employee, who became convinced that the
Clandestine Services had penalized themselves without compen-
sating benefits and that the reasons for exclusion had. not
been valid. He convinced all the responsible DDP officials
of the need to change the "status quo," and in May 1969 a
Task Force of eight DDP employees was established to code the
Agency experience of DDP employees. This was completed in
November 1969, and the Task Force disbanded. Since then one
QAB Qualifications Analyst has been assigned to Headquarters
Building, adjacent to Employee Files, and has worked full time
maintaining the DDP employees' qualifications and coding all
new DDP employees' qualifications.
With the inclusion of DDP employee experience, complete
recording of all employees in the system had become a reality.
With all employees qualifications being updated regularly,
and with all coding complete on applicants identified by
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Personnel Officers and Operating Officials, all but one of
the original goals for the Qualifications System were reached
by the end of fiscal year 1969. This was still the state of
affairs at the time of this writing (March 1971).
The only capability of the Qualifications Record System
not yet achieved is that of computer-produced Biographic Pro-
files. QAB cannot achieve this goal alone; the Biographic
Profile includes data for which other Agency components have
responsibility. For some years the Support Services Staff
of the Office of the DDS has had the assignment of integrating
the computer systems of Agency components having content,
input, or output common to, or needed by, other components.
Completion of this task should make possible some reporting
heretofore impossible, lessen the cost of other systems, and
revise the reporting system to meet the standards of an inte-
grated system.
The Biographic Profile, if it is produced by the com-
puter, will require some merging and trimming and some revising
of the EDP systems now in use by QAB, the Statistical Reporting
Branch of the same Control Division, the Office of Training
(language test results and Agency sponsored training), the
Medical Office, the A & E Staff4 the Security Office, and Mobil-
ization and Military Personnel Division (MNPD) of the Office
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of Personnel. The various EDP systems now recording various
items of information needed for the Profile are not only in-
compatible but also at least one (MIED) still relies on EAM
systems outmoded many years ago.
Thus the goals that could be reached have been reached.
The clear-language capability exists for such reports as
require it and is an essential prerequisite for the computer-
produced profile. A crude form of clear-language biographic
summary has been produced on a test basis; this was done in
a very hasty and abbreviated fashion to eliminate unnecessary
computer programming (by using an
required
only slight modification
computer-produced profile
manually-produced profile
and experience items will
will be
existing program which
to permit the test). The
quite similar to the present
(see Attachment z).
consist of computer
The education
print-out in
clear-text of the corresponding 12 character codes. Each 12
character code, translated by computer, results in a stereotype
sentence consisting of 5 parts and requiring up to 132 spaces
for the clear-text. The first element of each code gives the
field of knowledge or skill gained during the reported period;
the second element gives the extent in years of the experience
or specifies the level of education achieved; the third ele-
ment gives the function or role played by the employee while
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getting this experience; the fourth element gives the nature
of the source of the experience (identifying the specific
organization if a college or government agency); the fifth
element dates the experience by giving the year of its com-
pletion. For the test the stereotype sentence had to be
shortened to 86 spaces because the computer program (already
in use for another purpose) used the other 46 spaces to give
name, serial number, Agency assignment by organization, and
other information. One result is that this superfluous in-
formation is repeated on each line of the test cases. It
would be shown only once on the computer-produced profile,
and in a different part of the profile. Another result is
that the fifth element (year of completion) had to be omitted
entirely. Finally, clear-text elements which are shown
(specialization, function, source of experience) had to be
abbreviated in order to stay within the limit of 86 spaces.
In spite of the limitations caused by having to use an existing
program, the sample gives some indication of the potential for
computer-produced Biographic Profiles.* (See Attachment HH.)
* Language skills and personal data were omitted (inclusion
would have required additional programming; this sample
required only a slight modification of existing program
No. 236-A, a recurring semiannual report sent to all Career
Services).
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SECRET APPENDIX A
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Chronology: September 1947 - February 1971
Date Events
Sep 1947 - Dec 1950 Management Staff under the Executive for Admin-
istration and Management was responsible for the
very limited reporting of T/O's, personnel
ceiling, statistical operation analysis, and
reporting systems.
5 Oct 1949 General Order No. 24 established the Administra-
tive Staff to handle "Overt" activities and the
Special Support Staff to handle the "Covert"
activities.
Early 1950' Increased use was made of the Electric Accounting
Machines to support personnel reporting and
record-keeping.
Dec 1950 - Sep 1952
The Personnel Office, Personnel Studies and
Procedures Staff, assumed the Agency's personnel
reporting responsibilities.
Jun 1950 - Jul 1953 Korean Police Action influenced the rapid increase
in Agency Strength.
23 Nov 1951
1 Aug 1952
23 Sep 1952
31 Jan 1953
1953 - 1956
Personnel Director Memorandum No. 15-51 estab-
lished procedures to prevent duplicating of data.
Required Machine Records Division requests orig-
inating in the Personnel Office to be routed
through Personnel Studies and Procedures Staff, PO.
The merger of the Office of Special Services (Oso)
and the Office of Policy Coordination (OPC) pro-
vided a consolidation of records and personnel
processing.
Personnel Studies and Procedures Staff was reor-
ganized and became the Research and Planning Staff
of the Personnel Office.
The first issue of the Monthly Personnel Statis-
tical Review was prepared, published, and dis-
tributed.
Noticeable improvement was made in the use and
capabilities of the IBM Multiple Card System for
,Agency strength reporting and record-keeping.
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Date Events
20 May 1953
Early 1954
29 May 1954
25X1A
Jan 1956
1957
Early 1958
14 Nov 1958 25X1A
30 Jun 1959
Sep 1960
30 Jun 1961
Determination of Initial Career Designation,
Notice No. established 21 Career
Designations.
A procedure was established for the maintenance
of Staff Agent data on IBM cards to be used in
strength reporting.
The Statistical Reporting Branch was established
through the reorganization of the Plans, Research,
and Development Staff, Research Branch, into the
Planning and Analysis Staff.
Survey (review) of the data content was contained
in the Monthly Personnel Statistical Review.
Implementation of the Flexowriter to produce
input into the IBM (BAN) MUltiple Card Systems,
stopped the need for manual coding of personnel
actions.
SEB assisted in collecting and analyzing Agency
employees overseas service, which was used in
actuarial studies for determining the feasibility
of the CIA having an early retirement and dis-
ability system.
Procedures for Ceiling and Position
Authorization went into effect, creating addi-
tional reporting requirements.
Flexible T/O's were implemented for all Offices
25X1A by Positions were identified as to
whether they were "Limited" or "Flexible."
Some of the Office of Personnel requirements were
being satisfied through the use of the newly
installed RCA 501.
Approximately two-thirds of the regular Office of
Personnel recurring reports were being prepared
by the RCA 501 systems.
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Date Events
Nov 1962
Fiscal year 1964
Fiscal year 1965
Fiscal year 1965
25 Mar 1965
13 Mar 1967
The RCA 301 system was installed to resolve some
of the deficiencies that were surfaced in the
use of the RCA 501.
The Career Service Grade Authorization, a monthly
report, was formerly prepared by Salary and Wage
Division, but, in fiscal year 1964, the responsi-
bility was transferred to SRB.
The Manpower Analysis Numbering System (MANS)
identified positions by their Activity, Cate-
gories under each activity and by sub-category,
which categorized the positions into Professional,
Technical, Communicator, and Clerical types. The
use of the sub-category codes created numerous
personnel reports.
Average Salary Report, also referred to as the
Career Service Budget Authorization, was requested
by OPPB and required much time and effort by OCS
and SRB to establish. Discontinued after being
in production for one year.
The Support Information Requirements Group under
the Support Directorate was established to develop,
to the extent practical, an integrated system to
serve the needs of the Support Directorate as
well as the Agency resulted in additional workload
on SRB. SRB had to work closely with this group
in reviewing Personnel reports and requirements.
The Group is now known as the Support Information
Processing System (SIPS).
The Clandestine Service request that a qualifi-
cation record of all the "D, GS-09 through GS-15
employees be established in a computerized system
was submitted 13 March 1967. After numerous
changes and revisions the system is currently in
operation and is sometimes referred to as the
Home Base and Specialty Registers.
Jun 1967 RCA Spectra 70-45 was added to the RCA 501-301
Systems to increase memory capacity.
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Date Events
Jul 1967
Aug 1968
Jul 1969
The responsibility for the maintenance and
control of the Agency's Personnel Emergency
and Locator Records was transferred to SEB
from OCS/Ops Division.
25X1A was detailed to SEB from OP/Dev
Comp to review all reports prepared by SEE and
those prepared by OCS for OP's use.
Fiscal year 1969
Jan 1970
May 1970
Jun 1970
The responsibility for processing all the Staffing
Complement Change Authorizations (Form 261), which
establishes and maintains the T/O's., and the re-
sponsibility for processing of the Request for
Security Clearance Forms, the Cancellation of
Applicant Processing Forms and the various Security
Approval Forms was transferred to SRB from OCS.
The President's program to reduce US Government
employment overseas (BALPA - Balance of Payments)
levied monitoring and reporting requirements on
SEE.
OPRED (Overseas Personnel Reduction) reporting
by SEE was just the continuation of the BALPA
exercise.
The first Language Control Register was prepared
by the computer, showing positions having Specific
or General language requirements and employees
within a language unit having one or more of the
requested language requirements. The LCR was
25X1A generated by
An Ad Hoc Committee was formed by representatives
from SEE and OCS to review and firm up OP's future
reporting requirements.
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Glossary of Abbreviations
Abbrev.
Administration and Management A&M
Automatic Data Processing ADP
Career Service Budget Authorization CSBA
Career Service Grade Authorization CSGA
Career Service Staffing Authorization CSSA
Central Intelligence Agency CIA
Central Intelligence Group CIG
Collection and Dissemination C&D
Control Data Corporation CDC
Electric Accounting Machine EAM
Entered on Duty EOD
General, Services Administration GSA
Handbook BB
Inspection and Security I&S
Interdepartmental Coordinating and Planning Staff 'CAPS
International Business Machines IBM
Leave without Pay LWOP
Machine Records Division MED
Manpower Analysis Numbering System MANS
Military Staff Agent MSA
Military Staff Employee YEE
National Security Council NSC
Office of Operations 0/0
Office of Personnel OP
Office of Policy Coordination OPC
Office of Special Operations OSO
Organization ORG
Personnel and Administration P&A
Personnel Division Covert PDC
Personnel Division Overt PDO
Personnel Office PO
Personnel Strength Quarterly Statistical Review PSQSR
Personnel Studies and Procedures Staff PSPS
Plans, Research and Development Staff PRD
Radio Corporation of America RCA
Regulation
Reports and Estimates R&E
Staff Agent SA
Statistical Reporting Branch SRB
Table of Organization T/0
Unvouchered UV
Vouchered V
When Actually Employed WAE
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