REPORT OF HAZARDOUS DUTY COMMITTEE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP78-03578A000200010028-0
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 24
• Document Creation Date: December 9, 2016
• Document Release Date: July 21, 2000
• Sequence Number: 28
• Content Type: REPORT

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REPORT OF UII DUTY COMWTTZZ
L In accordance with instructions from the Acting Executive.
the Hazardous Duty Conunittee submits herewith a report relating
to benefits which should be made available to employees of CIA
whose duties may be, classified as "hazardous". (Membership of
the Hazardous Duty Committee is as follows:
2. The Committee will report herein on two separate plans..
Plan I will consist of the over-all long-range plan which this Commit
tee feels should be applicable to career employees of CIA who are ce -
gaged at one time or another in hazardous duties. Plan II has been
draws up with a view in mind of immediate implementation to meet
current needs to light of the possible zatioaal emergency or war. In
Plan U there are no requirements for additional legislation and with 'tom; r
the approval of the DCI the plan could be implemented immediately
.
within CIA. Plan II has been drawn not merely is contemplation of POs'
sible needs, but has been designed to take care of current expressed ;".
seeds of the covert offices.
3. There are attached hereto three appendices which set forth
in considerable detail various aspects of the -two plans which are set
forth below. ? Appendix A outlines the benefits which would be applic-
able for employees who engage in hazardous service. Included in
those benefits are additional retirement benefits. Jue to the complexi-
ty of that particular subject, Appendix B sets forth the necessary changes
to be accomplished in the Civil Service Retirement Act and the purposes
to be accomplished by the changes. Appendix C sets forth the standards
by which the Hazardous Duty Board (Later described) would be guided is
determining the eligibility of. a,s employee for hazardous and extra-
hazardous duty benefits.
4. This, Committee is aware that at the present time CIA is engaged
in correspondence with the Civil Service Commission and the General
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Accounting Office to determine the views of those agencies `as `to the
applicability of Section 1 (d) of the Civil Service Retirement Act to
employees of CIA. . (That particular section provides earlier retire-
ment and ether benefits for isvestiptory personnel such as personnel
of Ff1, Secret Service. eta.) As far as can be deterauined, so offi-
cials to CIA had been. previously advised that this particular section
was intended to cover CIA employees. Further, the Legal Staff has
advised informally that they are of the opinion that CIA employees are
not so covered. In the event the views of GAO and CSC are negative,
there would be no effect on the proposed legislation concerning retire -
.
west recommended by this Committee. In the event it is determined
that CIA employees are covered. it is the recommendation of this Com-
mittee that the proposed legislative changes specifically except CIA em-
ployees from Section 1 (d) of the Retirement Act. This recommendation
is based on the fact that admiaistratios of Section 1 (d) as it would apply
to CLA employees is administratively imyte dy and is any event would
contravene established security principles of CIA.
5. Plan. I has been designed to facilitate a career concept for those
employees of CIA who normally are regaired to accept overseas service
during their career. The very mature of the work performed by CIA
employees, and particularly while ,abroad, subjects them to certau
hazards which are unlike those undergone by employees of any other
government agencies. In addition, the restrictive nature of the security
requirements established by CIA creates conditions which are not io,.aed
is any other government agencies. Coasequeatly, this Committee is
recomrnendiag those specific benefits stated below as a part of Plan I
with.a view to encouraging and developing a true career service is intel -
ligem e. The emphasis of the benefits to be made applicaole is prunari-
ly to;offer some compensation to employees or their dependents .is. the
event those risks to which they are exposed result is misfortune or disas -
ter to the individual. such as imprisonment, injury, or death.
? committee members Pforsheimer and- dissent on the ground
that if it is conclusively determined that CIA personnel is covered
by Section 1 (d) of the Retirement Act, CIA shall avail itself of
this provision and asst seek as eacesspties,.
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(a) In order to establish permanently some of the benefits
recommended, appropriate legislation will be required. By
comparison of justifications and reports on somewhat similar
legislation, it is felt that CIA's request for the recommended
legislation will be. considered reasonable. The particulap bene-
fits which will require legislation will be so earmarked. With
one exception (dependent benefits), virtually similar legisla-
tion has been enacted in other instances.
(b) In addition to examining the purposes to be served by
a program of this type, the Committee has considered the pos-
sible difficulties which will be encountered in its administra-
tion, it is felt that, while there are a number of 'specific de-
tails which will require study and development, theprogram
is itself is susceptible to administration with a relative degree
of simplicity and integration with other established procedures.
At this time no estimates of the cost of the program have been
prepared. It is believed that prior to submission of the legis-
lative cb.asges estimates should be prepared, although it is
recognized that there is sot a great body of experience on which
such estimates can be made.
(c) It is intended that the beaeiits governed by this plan
would be available only to appointive employees of CIA who are
-S citizens It is proposed that hazardous duties be classed
late two categories. Hazardous and Extra-hazardous. Hazard-
ous Service would include all service abroad of any nature what-
soever (including TDY) It is felt that there are hazards to any
CIA assignment abroad is the sense that personnel abroad may
become potential targets for identification sad violence by other
,nations' intelligence services.. Extra-hazardous Service would
be determined by a Hazardous Duty Board in accordance with
standards to be established by the Director of Central Intelligence.
The requirement for Extra-hazardous Service would be actual
exposure to risk of bodily harm or death. Eligibility for Has-
ardous Duty Benefits would be determined by a Hazardous Duty
Board, the membership of which would include the following:
Personnel Director, Chairman
Representative of the Office ?or Staff concerned
Chief, Special Support Staff
Representative of the Legal Staff, Legal Advisor witholt
vote.
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(d) The followiag bessfita are recommended for service
failing is the lllasa:tiisss t egory<
(1) A &M& Brat ity am. tiag to sin-srwaths' salary.
The anmrmt would be base pay only eneludiag say over-
seas allowances, differentials, overtime or extra-
hazardous pay.
(2) Benefits of the Missing Persons Act for all
employees engaged in hazardous service. Aaticlpat-
iag that employees may be "detained" for long periods
of time, additional benefits would be granted to at-
tempt to compensate the individual is that during such
detainment he would be denied opportunity of grade
promotions.
(3)- Application of the standards aid benefits of
the United States Employees' Compensation Act to
the members of the family of the employee who is
eligible adder the Hasardons se.rvlct._eategory.
(4) Additional credit for retirement so that for
each year of hazardous duty the individual would re-
ceive 11/2 years' credit for such duty.. Further, for
each year of hazardous duty the voluntary retirement
age would be reduced by six months. The effect of
this benefit would be to enable as employee who had
engaged eostiauouall in hazardous service to retire
at age Sdw ttl only =0 years of actual service. This
system would, is effect. snake available to suck an'
individual exactly the same benefits now available to
all foreign service officers and to investigative per-
sonnel under Section 1 (d) of the Retirement Act. The
proposed benefits would be available on a proportion-
ate basis for those individuals who do ,art serve coa-
tinvously is hasardass service.
(e) The followis( bessata are retoso--olei for service
falling is the xtra-hazardous eatesoryt
.(1) All benefits net fort abwm for hazardes
service.
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(2) Additional pay at the rate of SO percent of bass
salary, not to exceed, however. $200 per four-week
pay period.
Benefits for E*tra-lrassioon Servi*s in the Waited dtates world
be limited to extra-hazardous pay and the - ath
gratuity,
6. The present world eoaditteas bays demanded that the covert of-
fices of CIA make certain proparatims to swat a passible satiowd
emergency or war. Is addition to those activities. the sormal work of
the covert offices, is the opinion of the Co^amittge? requires aetias at
this time to facilitate the accovaplishmsat of their mission. Coasegaest-
ly, the Committee has examined the basic ever-all plan and determined
that certain portions of that plan can be implemented entirely within
the framework of the existing authorities available to CIA. There are
existing problems which would be answered by this plan and at the
present time only temporary expedients can be resorted to which, in
Wiest fasts a ces, require the personal approval of the DCI.
(a) As stated above, no legislation is required for this
plan which will be referred to as Plan U. It is pointed out.
however, that the benefits are applicable only in those cases
.where the individuals are employed os Confidential Funds.
Almost without exception the cases that need to be covered
arise is the covert offices and consequently Plan II is this
respect appears to meet the immediate requirements.
(b) As was dose is connection with Plan I, this Commit-
tee has examined the administrative implementation of Plan
U &Ad feels that there are so isswrmomatable obstacles.
Further, Plan II. if approved. would eventually, upon com-
plete approval of Plan I, including the eaaetmsat of note s-
sary legislaties. merge and 'result is one ever-all plan with
a minimum of difficulty.
(c) The specific benefits area
(1) Death gratuity amosutiag to sir-moaths' salary.
(2) *essfits of Missiag Persons Act iaielgd1s regu-
lar increases in salary for those iadiviiduals qetaiaed"
for long periods.
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Report of Comes
(3) ApplicaU s of the standards and benefits of
the United States Employees' Compensation Act to
members of the family of the employee ender the
Hatard ws Service category.
(4) In the category of Eactra-hasardors Service,
additional pay at the rate of SO percent of base salary,
not to exceed, however. $200 per four-week pay period.
Id) If Plan U is approved, the necessary administrative
regulations, changes in regulations, and other papers will be
drafted for signatures of appropriate officials in CIA.
7 The individual members of this Committee have drawn upon
their 'own knowledge and experience to formulate this report' Iva addi-
tion, cooperation has been received from other individuals whose
capabilities and experience were such that the Committee felt they
would be of assistance in expressing the needs and stipulating the
measures necessary to meet those needs. This report. while not
signed by the individual members, is a unanimous expression of their
views, with the exception noted on page I. In ad&won the detains ?'jf
Plans I and TI have been discussed with Assistant Directors for 00
060. OPC, and Chief, IkSS. Wrath the exception of the Assists-it
Director, OPC, whose views are attached they have concurred i '
the plans recommended and contained in this report
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APPLIIQIZ A
GEISERAL PIC1 6AL
CONCZRIII W MAZA*Dt S DUTY BEMNITS
TO UWUCZ YOLUIITZZ1S !OR HAZARDOUS BERYICE
1. The proposals eatlird below are based on a alassiftcation.
of hazardous duties tuft two categories. The categories would be
Hazardous Service sad Zstra-hazardsus Service:
(Benefits would apply oaly to appointive employees who
are US citlssms. )
a. Hazardous Service would be defined to isw.tois all
service roe pay nature whatsoever (including TDY).
Where as employee is assigned to as overseas station. an
permanent duty and is as temporary duty is the United
States. eithor official can.saltatiea or home leave would
^et be construed to break the service for this purpose.
Other types of service would be classified as hazardous
in accordance with standards to be established by the DCI.
and is this caswectioa .each iadividual case, together with
the length of service to be approved as hazardous, would
be determined by the Hazardous Duty Board.
b. Extra-hazardous Service would be determined by
the Hazardous ty ii a aec:ordaace with standards
to he estebhshed by the DCL It is intended that the stead-
ards be set very high is order that o.aly truly worthy cases
would be considered eligible. The principal element to be
considered as a requirement for eligibility under Extra-
hazardous Service would be actual exposure to risk of
bodily harm or death.
Z. The membership of the Hazardous Daly board would lacla"
the following:
Personnel Director, Chairman
Repreaen#ative of the Orifice or Staff co~cera od
Chief. am
Rep re seatati ve of the Legal Staff. Legal Advises widmmd vote.
The P. rsosaael Director would be rettpo o as the recorder of the
board. Procedures would be estaabiiaygd by which the recorder would
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prepare appropriate certifieatime is order to establish an individual's
right to additita l benefits. B is ret:e^nmeaded that the Board, in ap-
propriate cases, be a boriaed to approve individual cases retroactive -
ly. It is farther intended that U it is determined by the board that as
individual met the standards sstsbiisbed by the M he would be en-
titled to the benefits flowing therefrom as a matter of right. Coase-
queatly. a recesnmeadatioa by his superior that he be as considered
world not be as essential requirement. The detera-iaatiwu required
under 3. c. would be made by the Board.
a. In order that the Board could fulfill its responsibility
in determining whether tadtvidsala met the standards es-
tablished by the DCI. all cases of death, injury or illness
while abroad would be brought to the attention of the Board
by the appropriate personnel office. In addition. supervisors
of individuals who may be eligible for benefits under this pro-
gram would be directed to bring such cases to the attention
of the Board.
3. ' The benefits to be available to individuals in .the category of
Hazardous Service would be:
a. In the cases of individuals qualifying there would be
granted a death gratuity amountf.ug to six months' salary
The amount to be considered wesid be base pay only, ex -
eluding any overseas allowances, differentials, evertixne
or extra-hasardoss pay. Such amount would be payable
to the beneficiary designated by the employee is writing,
or, in lien of such designation6 to the estate. The legis-
lsties estal.J~shing such benefits should Clearly indicate
that such amount is payable over sad above, and shall
not be considered as offset or as election in connection
with. benefits payable rider the United States Znaployees
Coaspensatien Act. Precedent for such benefits exists
in connection with the Armed Forces and members of the
Public Health Service.
b. Under paragraph S. 3 of the Can' 4.aet1al F. Regn-
lstiens, persons paid fuses such f-As are entitled to the
benefits of tis Missing Persons Bet B is proposed that
a14 persons eligible under Ow Haaardetis Service category
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would receive such benefits. Anticipating that there may
be cases where individuals are "detained" for long periods
of time, certain additional benefits would be granted to
attempt to compensate for the fact that the individual,
during such detaiamsat would be denied the opportunity of
attaining grade prometioas. Consequently he would be
entitled to receive increases is his pay (ad allowances)
at appropriate periods. The iac:rease would be equal to
the amount he would receive at the next higher grade to
which he could be promoted- At such time the allowances
to which he would be entitled would be recomputed on the
basis of the t_acreased salary. The waiting period for is-
creases would be one year between each increase until
the salary was equal to that which would be received by
as employee at the grade level of a GS-9. Thereafter,
the time period between each increase would be two years
The niizximum salary level wwaltd be the salary which would
be received by as employee at the 'grade level of a GS -1S.
While step-tucreases would be a. negligible factor wader
th s scheme, they would be gras.ted is a manner similar
t, ~x,s~imk procedures
(I) it is sot intended that the same allowances,
payable to the employee at the time he becomes
detaised, missing, etc , be paid to his designated
beuefic.ary. Rather, it is tateaded that only appro
priatu a Ir.warres be paid For example, is the
case if a siigle man having vo depesdeets where
he w{;t,1d be receiving his quarters and ^llowavices,
there wo*ild exist no fuatificattos. for coutiavatioa
of the quarters allowance if he were ses.issiag or
detained, since he would not be paying for such
quarters. Also, is the case of as individual whose
wife had beer at the station with him aid had bees
returned to the United States after the capture of
the employee, a separation allowance would be
more appropriate than continuation of the old quar-
ters allowance. Post differential and otbar allow-
ances would be paid in a similar asaaner.
c. It is also proposed that appropriate regulations be
established or legislation be drafted to antherine the appli-
cation of the standards and benefits of the United States
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Appesndiu A - 4 ..
Employees' Compensation Act to the members of the
family of the employee who is eligible under the Hazard-
ous Service category. The members of the family would
be as defined in the Standardized Government Travel Regu-
latioss. Since the standard for granting benefits to the
employee is whether the employee was injured is the per-
formance of his duty, a new standard would be established
for the members of the family. The standard would be
that the injury, illness or death must be determined as
having a causal relationship to the employee's duties
Generally, this benefit would be for application in over-
seas areas.
(1) Certain presumptions should run is favor of
the beneficiaries of this legislation. If there is a
reasonable basis on which there could be raised a
presumption that the employee was a target because
of his duties, the causal relationship between the
wife's injury and the employee's duties is thus es
tablished
d. Additional credit for retirement in accordance with
attached paper entitled "Recommended Plan for Legislative
Changes in the Retirement Act for CIA Employees Who are
Engaged in Hazardous Duties" .
4. In the category of Extra-hazardous Service, the employee wo^-1c
be eligible for all of the benefits set forth for Hazardous Service Ir
atdition he would be authorized additional pay at the rate of 50 percent
of his base salary, not to exceed, however, $200. 00 per four-week pay
period. However, benefits for extra-hazardous service is the United
States would be limited to the extra-hazardous pay and the six-rrmrths
death gratuity. It is intended that the Hazardous Service Board would
circumscribe the period for which the individual would be eligible to
secure this additional pay. The establishment of eligibility to run in -
definitely would be avoided by appropriate procedures and review ac.-
tions, Other elements to be considered in determining the period of
eligibility for lxtra-hazardous Service pay would be treatment afforded
other employees of the Agency ender the same or similar circumstances.
Uniformity of benefits afforded employees is to be desired where the
duties entail the same degree of risk.,
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5. it has been suggested that an additional benefit be granted
those engaged in Extra-hazardous Service by providing for the payment,
in the event of their death while engaged in such service, of an amorunt
of $10, 000 to their designated beneficiaries. Without recitation of the
technical details, such a scheme has been found infeasible due to the
fact that under the United States .Employees' Compensation Act the
beneficiary would be required to elect which benefit should be received.
Consequently, in the average case no purpose would be served by offer-
ing the payment of such a benefit. However, the election does not
apply in the case of proceeds of life insurance polities. Therefore, it
appears highly desirable to encourage very strongly all individuals
who are about to engage in extra-hazaardous duties to procure insurance
from the War Agencies Employees Protective Association. This insur-
arce is term insurance for which the employee must pay $12. 50 per
month. The face value of the pol-cy is. $10, 000 for those employees
rece,ving ack annual salary in excess of $3200; However, in event of
death, the sum of $11, 000 is paid on the policy of face value $10, 000,
and in the event of accidental death a total of $21, 000 is paid out.
Appropriate security arrangements exist with the Association whereby
the ernplovees of CIA are covered by a number, and the names are not
krown to the Associat os except upon the death of the employee while
ins:, red It :s recognized that employees should be encouraged to take
th,s insurance where they are going abroad in Hazardous Service. How-
ever, due to the risks entailed where the employee-will be is Extra-
hazardous Service, additional effort should be expended to encourage
the employee to protect his family or dependents in the event of his
death.
6.* The above proposals have been submitted basically in. outline
form. The justifications for each item and the administrative handling
s iould receive careful consideration. This part of the study is not in-
tended to furnish the reasons or the justification for the recommended
proposals.
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A Z A
MAX GEMOM "A LMMM AT1U GIIANGM
IN TN ZZTMZMEI!T ACT FOR CIA EIWLOTZE$.
WHO ARE ENGAGED IN HAZARDOUS DUTIES
1. a. Under the present Civil Service retirement system an
employee may retire at age 60, upon completion of 30 years'
service.
b. Under the Foreign Service Act a participant who has
10 years of service to his credit and has reached the age of
50 years is entitled to retirement. It should be noted also
that creditable service under the Foreign Service Act for ser-
vice is the military apparently is limited to those cases where
an individual is on leave of absence from the service.
C, Under the provisions of the Civil Service Retirement
Act relating to FBI perssaael an.d others whose duties are
primarily the investigation. apprehension or detention 'of
persons suspected or convicted of offenses against the criminal
laws of the United States, such individuals may retire at age 5O
where they have rendered at least 20 years of service.
It should be pointed out is connection, with the latter category of people
that the Civil Service Commission upon recommendation of the head of
the agency concerned, determines whether the employee is entitled to
retirement under these special provisions.
2. The methods of computing the annuity is the above cases are
set forth below:
a. (Civil Service System) The individual's average salary
for his highest five consecutive years is used as a facto: and
multiplied by 1 1/2 percent and then multiplied by the total
number of years of service. There is a limitation of the
annuity is that it may not exceed 60 percent of the average
salary for the highest five consecutive years of service. This
disregards the alternative computation where the average
salary is less than $ 5, 000.
b. (Foreign Service Provision,)) The annuity of a participant
is calculated as 2 percent al his average basic salary not exceed-
ing $13. 500 per annum for the live years next preceding the date
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of his retirement, multiplied by the number of years of ser-
vice not exceeding 30 years.,
c. (FBI, etc. system) The tndividual, if determined to be
eligible under the special provisions, is entitled to an annuity
equal to 2 percent of his average basic salary for any five coo-
secutive years of allowable service at the option of such officer
and employee, multiplied by the years of service not exceeding
30 years.
3. The security objections to the method used for determining
eligibility under c. is paragraph L above appear to be fairly obvious
if such a procedure were to be applied to employees of CIA In coc -
nection with members of the Foreign Service, the administrative
difficulties become apparent on examination and, we believe, are rec -
ognized by the Department of State. It becomes lncreasirgly d,ff.c;. t
to determine whether a particular individual shouid or should rot he
in the preferentially treated class Also, uniformity for iedivid.-a:s
under similar circumstances seems erninertly desirable
4 The following plan is an initial suggestion for an ameodme-t
to the Civil Service Retirement Act applicable to CIA The initial
date from which extra credit could be comptted wo:ild },e stated as
20 October 1946. The date of 22 January 1946 iaitalit/ recommends
itself as the date from which extra credit should he compted since
that is the date on which CIG came into existence As a practical rr:at
ter, the date of 20 October 1946 is recommended since on that date
personnel abroad were hired en masse as members of CIG.
a. For each year an individual was engaged in hazardous
duty he would receive credit for 1 1/2 years for the purpose
of computing years of service under the Retirement Act.
Also, each year in hazardous service would lower the volun-
tary retirement age, now stated to be 60, six mouths.
p. Days, months and years would be used in the initial com-
putations. Five working days would be computed as one calendar
week. However, in computing the annuity, the normal Civil Ser-
vice rules would be applied.
c. Hazardous service would be defined to include all service
abroad of any nature whatsoever. Other types of service would
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be classified as basardsns is accordance with standards to
be established by the DCL Farther, sack individual case,
together with the length of service to be approved as hasard-
onst, would be determined by the Hazardous Duty Board.
5. From the above it will be seen that generally, under the nor-
mal Civil Service system, 30 years of service and age 60 are the re-
quirements for retirement. However, an individual who served 20
years abroad would be eligible to retire at age 50 under the proposed
amendment and would have credit for 30 years of service. Conse-
quently, it is readily seen that such iadivid"l, in qffect, receives
the-benefits of the more liberal retirement laws of the Foreign Ser-
vice and FBI and other investigatory personnel. There is consider-
ably less leeway in applying discretion, and in the average -case there.
would simply be required mathematical computations.
6. It may be argued that the proposed plan is not as liberal as
other pans In some cases it may not be. In other cases the proposed
plan would entitle the individual to a more liberal annuity than under the
other two plans,- i. e. , Foreign Service and Investigatory personnel
The increased benefits are directly related to the length of time in which
the individual occupies a position to which are attached hazardous duties
7, It is believed that the required amendment to the Civil Ser'rice
Retirement Act will be comparatively simple and unrevealing. The bene-
fits accruing to as individual while he was with CIA would be preserved
in the event he transferred to another government agency His credit-
able service would merely be certified on his Form 2806, which is for-
warded to either the Civil Service Commission or the agency to which
he is transferring. Upsa reading the portion of the Congressional re-
ports relating to. investigatory personnel and the Foreign Service, it
is believed the proposed legislation could be justified in a very adequate
fashion.
8. It is intended that the above plan will be integrated completely
within the existing Civil Service retirement plan. Consequently, all
other provisions of the Civil Service Retirement Act would remain
applicable.
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APPENDIX C
TENTATIVE STANDARDR FOR THE APPLICATION OF
HAZARDOUS AND.EXTPA--HAZARDOUS DUTY BENEFITS
1. Hazardous Duty
(a) Overseas - PCS
? The Hazardous Duty Benefits for this category of
service shall be retroactive to 20 October 1946. The re
cords of employees terminated prior to the activation
of the Hazardous Duty Benefit Plan shall be examined to
establish (with the Civil Service Retirement Commission)
the additional service credits earned. Eligibility for '
heaefits shall commence as of the date of departure of t}:e
employee from the United States aad shall terminate upon
the date of arrival in the United States on PCS.
(b) Hazardous Duty - Overseas - TDY
Headquarters staff employees shall he elagible for
Hazardous Duty Benefits effective the day of departure
from the United States on TDY travel, terminat:rg the
date of return to the United States At s.ich time as adds
tioaal credit for retirement may be a;athorized an appro-
priate form will be devised which will be prepared at the
time the travel voucher is processed for the purpose of
computing and transferring the additional credit to the
individual's permanent retirement records.
{c) Hazardous Duty in the US
At the present time no general circumstances or types
of duty in the United States appear to warrant the general
benefits of Hazardous Duty overseas. In the event certain
duties in the United States are ultimately deemed to be an-
usually hazardous, but not to a degree warranting Extra-
Hazardous Duty eompoasatiaa, such cases may be declared
eligible for appropriate portions of the Hazardous Duty
Benefit Plan by the Hazardous Duty Board.
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U. Extra-Hazardous Duty
(a) extra-basardow Duty is defined as duty requiring an
extraordinary degree of moral courage, or eoatbias inherent
dangers to a degree that the possibility of casualty is extreme-
ly great or the cossequences of mishap are considerably more
serious than those incurred i.e normal employment. Examples
of duty falling in this category might include the following:
TIT Hazardous Duty Board
(a) The Hazardous Duty Board shall determine classification
of types of duty, eligibility of individuals, period of eligibility,
and other appropriate procedural aspects of the Hazardous
Duty Plan. The Hazardous Duty Board would rule on each
specific cast where the payment of benefits would be requested
inder this part of the over-all benefits available to the employee
(NOTE: The Committee recommends that staudards in
(Appendix C be worked out in greater detail upon approval
of the over-all report by the Director.)
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In oompliaeos with "Ole provisioac of $estion M of the 01as61-
fiostion Act of 1l4f, go Oivil dervice Oosszitissisa has studied the
problem of additions,& onWousation for hassrdous sglq.sats and
prreeats the. toll iaa soaelusions and reeesosaistiow s
Ocsislusieas 10isoussed in
I Chapter
FonditioDG sot o ii feL&rdi_ag1issrdous itley rats
1. Twenty-three Moral departments and ageasies and the
District of Columbia ?swrnwsnt,state that they have at least 330,000
hazardous positions located within the eontiseatal limits of the
'United ftates. T.snty-tour other Moral departments and agencies
report that sans of their positions oan be dsioribid as hasardous
wploymentsa VII
2. Of the 350,000 Federal arsd District of Columbia Goverarnt
positions considered to be hazardous by the agencies, about 75% are
those of maployees performing trades, crafts,- and laborer work.
About one-halt of the rewining positions involve lserentoroewent,
firetighting,'or work with or near explosives. Other hazardous
positions cited involve, fbr the most part, flight work, hospital
duties, research and testing activitios, inspectional assignoonts,
or forestry work.
3. Occupational basards in the Federal service appear in
varying forms and degrees and under a multitude of circumstances.
Among the principal variations of hazards are the followings
(1) hazards may be inherent or environmentali (2) they may be present
oonstantly, frequently, or ocoasionallyi (3) they may result in loss
of life, loss or impairment of limb, injuries, disease,. or illaessi
(4) they are found in a great variety of positions and under a great,
variety of conditions; (6) some hazards may be controllable while
others may not; and (6) hazards may exist in all positions within
an ooeupstion or only in some. VII
4*' Authority exists for the proper recognition of hazards by
Federal agencies in the process of determining position?olassifioa-
tioms or bass pay. rates for both Classification Act of .1949 and
prevaiiiag?rate positions. In some oases, hassrds can be oonsidered
at the time the relative worth of positions is deteMaed under job
aoslnstion and #lassifioation plans, .In or oases, tbsy can be taken
into ? Remount directly when base par rates an determined. . VII
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Dis.assed in
Chapter
s, Is the -arse of }~i tIbs QiasiltlasRio~ e
19;0, as indieatsi bT 1gs t; !!ails Spevitieatiorr, .lwasads
jam
positional of ilfflrrrOR ~ri ss .s,' (b) ..T.M as gsws~tl,
allooofio*, factors am*"* se1T 'pbiiiti`oos" s ail Gramm
is ?saw series said (o) sr's -ti oohm aes the - ,d'Lfftsnslb pt ape U%a
duties d.gr~ese of responsibilities, e d 4us-lifioatioe rOCsirse aRs
of posoazs?
m
6. Ausard diff`reatiale for Upgraded positions (,nsstly er'afs.,
trades, and ' labor paid prevailing rates) Piro Oct comma in tbs. t+ederal
aorvise. All agencies have the general authority to detcormins dlwthor
a hazar&pcy differential shall be given for a particular ungraded
position. Your agencies have wed this authority and typically only
,for duties that are irregularly or Infrequently assigned or are not
VII
grado-classification or the base pay rate of a position, a hazard-pay
.differential would not be warranted even though a hasard-pay differen-
tial for the same type of smplarment is given by private industry. VIII
universally present in all positions In the occupations involved.
Charaoteristionlly, differentials a" not paid for hazards already
considered in determining bass pay rates.
To If, the degree of hazard has been given due weight in the
Benefits Applicable to loyees in Atsar dous looyymo. nts
8. The fact that hazards der exist in certain occupations and
positions does lot'nooessnrily imply that a hasard-pay differential
is warranted, Related factors and other types of oompensation deserve
oonsidoration also.
9. Federal and District of Columbia Goverment employees have
three types of protection against financial losses arising out of
oooupational injuries or disease. These are (1) leave with pay,
(t) msbosnso compensation mtards and medical -bare, and (3) dis-
abil11p/ retirement apd death benefits under retirement systems. In
addition, have with pay, disabilMW :retirement, and death benefits
ovl~ds some protection in sass of accident, or Illness that is not
ono otiou431Y insna ved. IV
10. The bacarlodge that he..is protected against financial
joss. arising out of injury or disease should give an employes
a sense of seourL akin to that given ty a health and accident
insurance and iadseisfLI' p011 eV :
11.?To great hazard pati' mffresdials geser lly would t
to giving ~fi. AMW wttlh lhieh to purchase Insueanss
that the Wwwrimme s1:M* pro ildes.
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Iafety progri
1do The eliminaticun, reduoltion, or control of job hazards
_;.tough an effective safety progiraa is an important form of
a'nuranoe for every employee affected 1V the prograr.
19. , All agencies engaged iia work that is ordinarily
o+nsidered hazardous have organi ced safhty prograe.. In
addition, there are throe Government organisations engaged
ctivs1y in safety progremes on an inter-departmental basis. 1.1
20. Federal safety programs have played an important part
reducing the frequencsy, severity, and costs of accidents In
the Government service. In fact,, as the number of lederal.oivilian
s s loyees under crganizchd safety programs have increased, the
t'requenoy, severity, anc, costs o:i" aooidents have decreased. l l
?1. Although the tlovernmen'it's accident record is quite
favorable when compared with the experilenoe of many industrial
e stab ishmenta, there its conside.ira.ble iroom for further improve-
cnt.
?2. If a Government-wide hazard-pay differential program,
were authorized, pay differentials based on risks as affected by
safety programs would be granted enure often where there is no
effective safety program than where there is an aggressive and an
effective safety program. This is an undesirable result. The
threat of loss of pay might have the unfortunate effect of making
workers reluctant to cooperate in a sairety program.
1-5, When the dep reie of hazard is reduced through a safety
program, it may be expected that reduction or removal of a hars.rd-
pay differential would be resisted by employees, Yet if the pay
differential were not reduced or dsisoortinned to correspond with
a reduction in the degree of hazard, the pay differential would
lose its identity as payment for the degree of hazard.
(e) Health programs
24.. The besi.e goal of employee health prograas???to proaopte
and maintain the physietal and mental tI tness of employees--has
special significance to emWlcyees in hazardous, saployments.
These program have importance both in pretenting aooidents and
In providing essrlpney treatment and dLegnostie service to .
loyees injured is .acoitdeatits
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bierssrsedt in
i. h Ufte r .t ~Rrd I ~lR ~. 1 e t
e~ r~rt4N of, am t r~+. o -, 1l?~fr:$k 1~rt at all., ! or of the
ethors 1lnvd btrslw ear fisst-aid ease. t>ters+ ew+o
r lattIV ly tvi planes is 1614k then espihsete 1t` on a provenuVI
gran. Abut No of a"loy,es in the *.s'iatton JMtropolitea
rr a tiro pro &* li t amiss tau of %Na2't1 servles, 'be"" only
88% for sr~rlirss? ~evutdtde of fte' 60bie area have saol ssr"ioe.
TLa pr+eblsn of p ceding. ade"te bealib servioos to a ll 'c'ups ;[g=
of Fktdoral osplorose is eopee16l31/ serious.
ad, ptatutary . authority eiioite tler the establishment of
prowativojtype of 2.oyros beslth programs in Federal establisbuents
but rtgoneio? my sot develop h. i1th services that exeood in coat
48400 per esiployo+e per :year? ewiloss speoial industrial oonditions
or other abnormal health of noei.Ooi* risks exist whiob warrant
on 'additional allowunoo." In aeverr. l oases, hen lth programs axoeedinll;
the oast of $5.00 per employees per year have boon instituted to moot
opeoial health needs. Etil
.27. inoouraging strides are being ado constantly in the
dtrootion of better health uirvioos for more Pedernl employeos,
but rush remains to be done to provide health-promotion, disec se-
prevention, health-cr.intenanoo pnogrwns.
acu^d-Pgr Psaotioes in Arimts Indust
. iti. In privato industry,?tharo is oonsidorable variation in
husard-poy practices from industry to industry c.nd from comparW
to ocwrpe within an industry.
pSb. In priv+o-te industry, hs1rerd-pay difforentials are provided
for in only a relatively mall hcssber of oolleotive-bargaining agree..
oats. Over oas . if of Ow apoetionts containing hasard-pop diffor-
ttaal slauros are ooneentrated in four industries: shipbuilding,
meter tranaportattos, ssemato amid public utilities. inn
34. Frey dttlarsesllsls presided iR private industry eolleotiv.-
bargatiaUe eaatraots a v.r seplareeonts that fall principally tatae
c nat. o Irdl s (1) west (a) .e-slc With Or near explosives e
'8) troth iavelvtag esperwe to iistsos dusts, and other irritwitsi
.1 (e) piloti*i *d other flight warts wad (7) work regeirila8
Trost is sitrrras . teysrstutss i (5) usdorgr s d and mdor.etor
oarwre to him voltaps. III
a. ' ell! dt ens edr PMO'iided for id private isdisstry,
t Sr. P40 hir llrsaslsr or ossasiooal &Aiw or for
O' . ik is s s adWMM6a1 portion or the r? s
fit. a diftersntials pail b private ludiesery
r !ti?- $t e trslso 4M emt evalrsatsd is Mr establish.
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Discussed to
rpc,s,.s of Ertr Pr. far Ra r.rd
33. F=ir ^nd ridoga^t.c basc pay mtoa servo as an induoer_ant to
-. ccrr:eitmont when they s ;rve their orimr ry purposes, wi.ioh arc to
sty for services ronder_:d tad to provide an nppropr?i'ito standard of
i rig,
34. There ,,:ri r xny factors in rddition to pay which attract
speotive or4)1oyous rr d vh,ich t.,rnd to reduce the rolativo offoot
ojtra_ pixy r.a an induaor-ent to reoruitr nt.
'5A). The opi,ortunity of onploymont is the major induoomant
for? rocruitnont in inhurvntiy danf;orous occupations for persons
ty;ho c.ro willing co accept the risks. Inherently dangerous ooou-
i, bons do not ttrnct Mployeos who arc unwilling to undergo the
risks, and additional c3mpunsation would not inffluunuo such parsons
=o accept such eriployraunt.
~. A, .rinloyc;e u:ho Iva; atrong f"enre about the naznrda of u
position, and who h...s chctce of positions in an occupation ~rhero
bho haz rds ire not inhuron?: in all positions of the occupation, tirouid
'ivt rocz&in long in 1 111?z-.raclis po:iition uvc..n if by ccculd be induoud
pt it initi'?lly. Additional com,pansation does
.v -.ctrr 1 )y to .cc(-
tent ccrrqu.,r f:,fcr.
.7, qi nco du re os of h ,z ad are not proportxon.: i to recru.t .T
r;ount difficulti,;s in h.,z?.rcius c.,m,,lcyr:.unta, mint-inanoo of a dir.ic--
rulat ?Jnship bct`a;(.?_n_ h? z)-rd -p%'.y d:iff::rurtiais rind dcgreoa of hazard
;:foos riot p,r;iit th, r.cru_tr:font purposo of hazard pf,y to be eon-
;.rol:ii.rig. H?iz' rd'-p!?.y ;ifft.r ntials b sad on degree of hazard could
ar,~ as ,in inducorn nt to r?.;cru5.tr.unt on.iy incidentally.
#,A. is a pr?actic'1 ratter? it is impossible to dotormine trio
?,unt of additional ncaded to balance a roluotunoo
,ooopt the haz~.rds ~ f :i position.
Considurritior s
;k P. A Government--aide ;,roc:;r ri of additional oorcenac:tion for
irdous employrents would .,ee :.mprcct?icable, and would not give
>ccur Sato, equitable, or oorusistont]y Luziform results. In addition,
i. :iouid conflict with the nornnl programs ror determining pay %-nd
?or ,vtking thu Fudorc_1 service a safer plane to work in. ill
iO. Motu problems would be;i created by a Uoveri nt?wide hazard
pay differential progrr:m than would bo solved by it. Viii
41. The adriinistration of a hazurd.pay ditterontial program
ould hive to be rather completely dectraltzed, would involve
the maintenance of detcbilod reoordss and would require eonstornt
'attention. r ?'~ i"
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a~~ o+svessaerd
Ia. Degrees apt ,hawed are vory diffimIt .to eealy s aid
AftjPM1Ge* AV does of hasetrd is a seesepemits of the natura,
of the hazard, the degree of ezpomars ts- the bass", the tiara
d=ration of exposure to the hazard, aad the deg me of oosrtrol
cf the hasatd det .radnee the ds vee of Snsar4 , TIl'I
.6 Dogmas of hasc rd in ioltividw4 petitions sh a tree
raised over the hazard, The effect of the last the.. on the
,
five to tine, depending capon adsinistralivne and snporvisosy
prnotioos, industrial houlth and safet r programs and teoheeom
lo,gioe4 edvnrnooments offectint the swore. III
44. D otorminationr of degrees of bass" is iadivri l
positions r-,quiro a continuous pro%iran for applying the ooordi.
deed knowledse of personnel toohni~iaelans, operating syervisess,
publto hoaltk physicians, industrial health engineers, and safe y
onglneors. Aooidont statistics said insuraanee rates gore not
aooeptable 's proper indioos of degrees of hazard, ?III
dh. In an attempt to secure an n oh uniformity or eon-
sistuncy as possible in a Govornmnt-sands, hazard-pay ditfer?
ontial program, adrelnistratiorr seed decisions would have to be
upplenesnted by ad inspection, audit, and eorrsotioo prodreua. VIII
4106, Under a Govern nt-sride hazard-gamy differential
program, some procedurd would have to be devised fbr considering
the ooarplaints of ea)loyeas and agenoiss regarding sz- lack of
oonsistenoy in tho technical decisions atfbating different posi-
tions or group. of positions. v?t~
dl'. The a priori r?quirement ter tlhs proper adadristtation
of a hasard-pry difAl,"crontial progrzne is 'W4 availability of
suffioiesst funds. The program. would present a budgetney problem
to asonoies. In t l* event an agency, could not absorb the costs .
the differential would have to be vithbo ld. c budge" adjuster
nt would have to be M de on other It*-we, or extra apprepria.
tions would have to be seourod.
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aeiszesia& Lone
ecomeeesnd the following as the future policy Md plan of the
fedese government with respect to nftitioMl es ,enIstion far
hazardous ampl .)moats $
1-. ? am long.-range goal of tkie Federal governisent should be
toward reducing and controlling octoupaiional basards. In.plear of
.ddosproad us of funds for additional ootpensatlon for hazardous
lcym.nts, consideration should be given to coordinating end making
mre effective glen present programs for making sorting oonditions in
lit. Federal servioe more healthful and safe.
9, Due weie t should be given to occupational hazards primarily
in classifying or evaluating positions and in establishing base pay
rates. Additional compensation above base pay rates for hazardous
loymenta should be avoided as such as possible.
S. Additional compensation above base pay rates for hazardous
s p1oymsnt should be considered for those employments for which
private industry,.irants a hazards-pay differential and prevailing
_-*arates and practices are follo'ed. fates of additional oompen-
iation when granted should conforsn to the prevailing practices in
private industry In the samo labcr-market area, if, however, the
degree of hazard has been given due weight in the grade-olass itloation
,f a Federal position or in the base pay rate for the position, no
Lazard-pny differential should he granted. This policy requires no
bhan in current authority of cidepartaents and agencies to establish
pay rates for ungraded positions in accordance with prevailing
ppraotioes in private industry.
4. In regard to positions under the Classification Act of 1949,
as amended, the effect of occupational hazards on duties, responal-
bi lities, and, qunlifioation requdremorXe should be given due consider L-?
.ions in combination with other pertineedt factors, in class speoifi".-
tions and in the allocations of positions to classes. This policy
,e in current authority of the Civil Service Comssission
requires no ohaeng
-And of departments and agenoies under the Classification Act of 1949,
s amended.
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