LETTER TO LOUIS STOKES FROM PHILIP A. ODEEN

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00530R001002360006-9
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 12
• Document Creation Date: December 27, 2016
• Document Release Date: April 11, 2013
• Sequence Number: 6
• Publication Date: August 29, 1988
• Content Type: LETTER

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AN1AJA
National Academy of Public Administration
,Chartered by Congress
The Honorable Louis Stokes
Chairman
House Permanent Select Committee on Intelligence
H-405 Capitol Building
Washington, DC 20515
Through: Judge William H. Webster
Director of Central Intelligence
Dear Chairman Stokes:
August 29, 1988
On behalf of the.National Academy of Public
Administration's Panel. for the Study of the Intelligence
Personnel Systems, I am pleased to transmit the September 1st
interim report, as requested by the Congress in the Conference
Report for the Fiscal Year 1988 Intelligence Authorization Act.
The report is also being sent to the Honorable David L.
Boren, Chairman, Senate Select Committee on Intelligence.
Sincerely,
Philip A. Odeen
Panel Chairman
1120 G Street, N.W., Suite 540 Washington, D.C. 20005 [phone] .
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F?T
The Director of Central Intelligence
2 September 1988
The Honorable Louis Stokes, Chairman
Permanent Select Committee on Intelligence
U.S. House of Representatives
Washington, D.C. 20515
Dear Mr. Chairman:
Attached for your information is the 1 September 1988 Interim Report from
the National Academy of Public Administration (NAPA), the second in a series
studying the Intelligence Community's civilian personnel management and
compensation systems. The Final Report will be transmitted to you on
20 January 1989 in accordance with the Conference Report on the Intelligence
Authorization Act for FY 1988.
The second Interim Report centers on workforce issues, examining the
impact of changing intelligence requirements on the personnel systems of the
various intelligence agencies and discussing staff recruitment, retention, and
training. I was particularly interested in the Report's presentation on why
the Intelligence Community is unique from other government agencies, and
NAPA's assessment of the special requirements to which employees of the
intelligence organizations are subject. The NAPA Panel's preliminary findings
in this area are encouraging, and we hope that further study will lead to firm
conclusions. NAPA has also presented a thoughtful examination of the degree
to which judicious use of our special authorities has allowed us to compete
for talented personnel in the past, and the degree to which we will be
required to use them in the future. Overall, I am encouraged by the work the
NAPA Staff and Panel have conducted thus far and lone forward to the
conclusions and recommendations they will make in tho Final Report.
A copy of this Report is also heinq forwarded to the Chairman, Senate
Select Committee on Intelligence.
jinr~re v yours,
Jebster
Enclosure:
NAPA Interim Report
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AAPA
National Academy of Public Administration
14 ,Chartered by Congress
August 29, 1988
The Honorable David L. Boren
Chairman
Senate Select Committee on Intelligence
SH-211 Hart Senate Office Building
Washington, DC 20510
Through: Judge William H. Webster
Director of Central Intelligence
Dear Chairman Boren:
On behalf of the National Academy of Public
Administration's Panel for the Study of the Intelligence
Personnel Systems, I am pleased to transmit the September 1st
interim report, as requested by the Congress in the Conference
Report for the Fiscal Year 1988 Intelligence Authorization Act.
The report is also being sent to the Honorable Louis
Stokes, Chairman, House Permanent Select Committee on
Intelligence.
Sincerely,
14aix /1;0~ )~f d!5~44 1b.? w
Philip A. Odeen
Panel Chairman
1 120 G Street, N.W., Suite 540 Washington, D.C. 20005 [phone]
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The Director of Central Intelligence
2 September 1988
The Honorable David L. Boren, Chairman
Select Committee on Intelligence
United States Senate
Washington, D.C. 20510
Attached for your information is the 1 September 1988 Interim Report from
the National Academy of Public Administration (NAPA), the second in a series
studying the Intelligence Community's civilian personnel management and
compensation systems. The Final Report will be transmitted to you on
20 January 1989 in accordance with the Conference Report on the Intelligence
Authorization Act for FY 1988.
The second'Interim Report centers on workforce issues, examining the
impact of changing intelligence requirements on the personnel systems of the
various intelligence agencies and discussing staff recruitment, retention, and
training. I was particularly interested in the Report's presentation on why
the Intelligence Community is unique from other government agencies, and
NAPA's assessment of the special requirements to which employees of the
intelligence organizations are subject. The NAPA Panel's preliminary findings
in this area are encouraging, and we hope that further study will lead to firm
conclusions. NAPA has also presented a thoughtful examination of the degree
to which judicious use of our special authorities has allowed us to compete
for talented personnel in the past, and the degree to which we will be
required to use them in the future. Overall, I am encouraged by the work the
NAPA Staff and Panel have conducted thus far and look forward to the
conclusions and recommendations they will make in the Final Report.
A copy of this Report is also being forwarded to the Chairman, House
Permanent Select Committee on Intelligence.
Sincerely yours,
William H. Webster
Enclosure:
NAPA Interim Report
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SECRET
14 OF National Academy of Public Administration
Chartered by Congress
SECOND INTERIM REPORT
BY
A PANEL OF THE
NATIONAL ACADEMY OF PUBLIC ADMINISTRATION
Philip A. Odeen Chair
Hon. Julius W. Becton
Dr. James Colvard
Admiral Bobby R. Inman
Hon. Carol Laise
Fred Meuter, Jr.
William G. Miller
SEPTEMBER 1, 1988
1120 G Street, N.W., Suite 540 Washington, D.C. 20005 [phone]
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TABLE OF CONTENTS
Chapter One - Introduction
I. Changing Functions Reflect Breadth of Missions
II. Changing U.S. Workforce Will Affect the IC
III. Unique Aspects of Intelligence Agencies
IV. Flexible HRM can Accommodate Needs
Chapter Two - The Right Workforce Mix
I.
Recruiting and Retaining Staff
A. Impact of Changing Authorization Levels
8
B. Meeting Staffing Needs
9
B.1. Recruiting critical skill positions
10
C. Military Intelligence Components:
Different Situation
12
D. Retaining Talented Staff
14
E. Recruitment Coordination Lacking
15
II.
Impact of Personnel Security Requirements
on Recruiting
III.
Impact of the Changing Workforce on IC Staffing
17
A.
Proportion of U.S. Graduates with Critical
Skills
18
B.
Recruiting from a More Diverse Workforce
20
Chapter Three - Investing in the Intelligence
Community Workforce
22
I..
Training for Mission Accomplishment
?
A.
Level of Training Varies by Agency
22
A.1 Central Intelligence Agency
23
A.2 National Security Agency
24
A.3 Defense Intelligence Agency
25
A.4 Federal Bureau of Investigation
25
A.5 Military Department Intelligence Components
25
B.
Intelligence Community Cooperation on Training
26
C.
Agency Assessments of Training Programs
27
D.
Agencies Looking Ahead
28
II.
Career Development of Intelligence Community Staff
29
A.
Amount of Career Development Varies
Among Agencies
30
B.
Relation of Career Development and Agency
Planning
33
C.
Helping Staff Move Outside the IC Agencies
33
D.
How the Agencies are Looking Ahead
34
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Chapter Four - Current Proposals and Future Work
I. Current Proposals: Central Intelligence Agency
A. Changes in the Leave Program 37
B. Changes in the CIA Awards Program 38
C. Flexible Benefits Proposals 39
II. Current Proposals: National Security Agency 39
III. Topics for Additional NAPA Work 40
A. Compensation: Pay and Benefits 40
B. Creating a More Diverse Workforce 41
C. Organizational Alternatives for IC Coordination 41
D. Reducing Human Resource Costs 42
IV. Study Timeframes 42
S E C R E T
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EXECUTIVE SUMMARY
The Congress directed that the National Academy of Public
Administration perform a comprehensive review of the civilian
personnel management and compensation systems of the Intelligence
Community. This is the second interim report.on this study.
In this report, the panel discusses:
-- The impact of future intelligence
requirements on human resource management
systems.
-- The major effects on the intelligence
agencies of anticipated changes in the US
workforce.
The ability of the intelligence agencies to
recruit and retain quality staff, currently
and in the future.
The effect of the personnel security
program on recruitment and retention of
quality staff.
-- The adequacy of agency training and career
development programs in support of current
and future agencies' missions.
The panel's central finding to date is that those intelligence
agencies with sufficient flexibility in their personnel authorities
to compete with the private sector met the challenge of large staff
growth.
While the panel believes that the IC agencies have generally
been able to recruit quality candidates for their positions, it is
clear that projected changes in the U.S. workforce call for greater
innovation if this record is to be sustained. Given the strategic
trends in the intelligence function and the demographic, social and
economic trends in U.S. society, the panel reaffirms the need to
continue these flexible personnel authorities and to extend them.
Based on the FBI's recruiting difficulties for specialists, and the
successes achieved by CIA and NSA, the panel believes Congress
should grant the FBI personnel flexibility comparable to that
recently provided the military department intelligence components.
S E C R E T
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The panel believes that the intelligence agencies need
to be able to hire, when needed, those military retirees
with unique skills. The agencies also need to be able to
compensate these individuals at a level that will give them
the incentive to work in an intelligence agency when
needed. The panel will examine this issue more fully, and
present details on the unique skills which are sometimes
required and options for compensating those who have them.
The panel notes that the staffing levels of the
intelligence agencies have fluctuated greatly in the past
two decades. These fluctuations are inevitably the result of
budget and political considerations and are often passed on
to IC agencies as "fair share" reductions. If cuts must be
made, the panel believes the program priorities of the
intelligence agencies must be realigned consistent with
workforce adjustments.
Each IC agency recruits to meet its own hiring
requirements, and does not share employment information or
refer potential candidates when they are unable to hire
them. The panel believes that many of the talented people
who are not hired by one of the intelligence agencies may
meet the hiring requirements of another. Rather than force
these applicants, many of whom have passed security
clearance procedures, to go through another agency's full
application process, the NAPA panel recommends that the
intelligence agencies seek ways to increase coordination of
entry level recruitment..
While the IC agencies do not indicate, with the
exception of the military department intelligence
components, that they lose a large number of candidates due
to the time lags in security clearance processing, the panel
relieves the intelligence agencies lose a great deal of
mission-related flexibility when they cannot hire new staff
as quickly as they are needed. The panel believes the
clearance processing times for the military departments,
which take six to nine months, must be reduced.
Security procedures must be sufficiently rigorous to
give the agencies full confidence in their thoroughness.
However, the NAPA panel believes that there may be room for
innovation -- such as that employed by NSA in issuing
Limited Interim Clearances. The panel suggests that
agencies examine their clearance processing times and
determine whether the timeframes are due to thorough
investigative procedures, backlogs or other factors.
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The NAPA panel recommends the IC agencies develop more
proactive efforts to outplace employees once the decision has been
made to remove them involuntarily for security reasons. The panel
is also concerned about the need for outplacement support for staff
leaving for other reasons and will address this issue in its final
report.
In general, the panel believes that the training courses
offered by the IC agencies are varied and extensive, and are keyed
to support mission purposes. However, the uneven levels of
training provided among the intelligence agencies appear to
indicate that staff in some components may not be receiving
adequate training. The panel believes it would be useful for the
IC to have a formal mechanism for agencies which lack full training
resources to request assistance from others. The panel recommends
that a Committee on Training and Career Development be established.
The current level of training effort appears to provide a
solid foundation for the future. However, only two organizations
-- NSA and CIA -- indicate they are systematically examining future
training needs. All intelligence agencies should give this area
greater attention.
The panel believes that NSA's career development program is
strong. It recommends that the other agencies take steps to
improve theirs, and recognizes that the CIA has defined an
effective program, which awaits approval.
The panel supports the DIA initiative to establish a basic
ordering contract, which promises to make the external. training
procurement process operate more efficiently, and it recommends
that the Community examine this initiative for potential use on an
IC-wide basis.
The panel endorses current proposals to lift Government
Employees Training Act restrictions and permit agencies to use
external training resources more flexibly. Such flexibility is
needed by the intelligence agencies and should be provided to them.
The panel nas examined a number of personnel changes proposed
by the CIA. It is the panel's recommendation that the proposed
pre-retirement.job search program should be redesigned to more
closely follow the State Department program. The panel believes
the administrative changes in the agency awards program should be
implemented without delay. The CIA should defer action on
proposals to'revise employee benefits programs until the panel has
reached its conclusions and recommendations in the compensation and
benefits area.
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The panel is continuing its work in several key issues in this
study. These are: compensation and benefits for staff of the IC
.agencies; the status of equal employment opportunity and the
challenges of creating a more diverse workforce; opportunities to
reduce personnel costs without adversely affecting mission
accomplishment; and organizational alternatives for improved
personnel management coordination. The panel will also examine the
extent to which the personnel authorities available to the
Department of State's bureau of Intelligence and Research enable it
to fulfill its mission. All of these matters will be discussed in
the panel's final report.
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