TECHNICAL AND MANAGEMENT PROPOSAL

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00530R000601640001-9
• Release Decision: RIPPUB
• Original Classification: K
• Document Page Count: 16
• Document Creation Date: December 27, 2016
• Document Release Date: January 11, 2013
• Sequence Number: 1
• Publication Date: February 12, 1988
• Content Type: MISC

Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
STAT
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
4.
NATIONAL ACADEMY OF PUBLIC ADMINISTRATION
VOLUME I - TECHNICAL AND MANAGEMENT PROPOSAL
PERSONNEL STUDY OF
THE INTELLIGENCE COMMUNITY
Solicitation No. 88-A109
February 12, 1988
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
TABLE OF CONTENTS
PAGE
I. INTRODUCTION 1
II. DESCRIPTION OF THE PROBLEM 2
III. STUDY MANAGEMENT 9
IV. PERSONNEL 12
V. PRELIMINARY SCHEDULE 14
ATTACH ME NTS
A. NAPA Organization Chart
B. Candidates for Five to Seven Member Panel
C. Staff Biographies
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11 CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
I. INTRODUCTION
The National Academy of Public Administration Foundation is pleased to submit
this proposal in response to the needs of the Director of Central Intelligence.
The National Academy of Public Administration was established in 1967 as a source
of independent advice and counsel on making government work. It exists solely to help
government achieve excellence. By seeking the very best management practices in both
the public and private sectors, National Academy studies have helped federal, state, and
local agencies achieve new levels of effectiveness. Over the past two decades, the
Academy has conducted 150 such studies. Moreover, these studies continue to lead the
agenda of innovation in public administration and policy. The unique resource of the
National Academy is its membership, composed of more than 350 distinguished
practitioners and scholars of public administration ? former Cabinet members and
governors, White House officials, prominent business executives who have served in
government, and professional government managers and scholars specializing in public
affairs. Like other professional academies, the National Academy's members are elected
by their peers and are representative of all levels of American government.
Members represent a diversity of backgrounds and experience at every level of
government, from local to national to international. All share one important
characteristic - they have made a sustained contribution to the field of public
administration. Participation in the Academy's work is a requisite of membership, and
the members offer their experience and knowledge on a voluntary basis.
In 1984, President Reagan signed legislation granting a federal charter to the
National Academy of Public Administration. It is the first such charter since President
Lincoln signed the charter for the National Academy of Sciences in 1863. Upon signing
the charter, President Reagan expressed his "hope and conviction that future
Administrations and Congresses will profit from the research and counsel provided by the
National Academy to increase the effectiveness of government." As the National
Academy enters its third decade, the need for effective public management has never
been greater.
Academy studies are supervised by project panels composed of Academy members
and other invited experts from inside and outside government. Day-to-day study efforts
are conducted under panel supervision by professional staff augmented by specialists
recruited for their superior qualifications. Although subject to Academy quality control
requirements, the substantive content of final study reports is the responsibility of the
1
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
project panels. The business and leadership functions of the Academy are guided by an
elected 15-member Board of Trustees. The President of the Academy is appointed by the
Board to direct the operational activities.
The National Academy is supported in part by an endowment raised from its
members and a variety of foundations and corporations; by the Webb Fund for Excellence
in Public Administration and the Staats Fund for the Public Service both of which accept
contributions from corporations and individuals; and by sponsoring organizations and
foundations for specific projects. It is recognized as a charitable non-profit corporation
under Section 501 (C)(3) of the Internal Revenue Code and contributions to the Academy
are tax deductible. It is not federally funded.
The National Academy's research and study program provides assistance under
contract to government agencies, foundations, corporations and associations. These
studies have contributed to a growing body of knowledge on many aspects of effective
governance. From better financial control to innovative human resource management,
from effective public procurement to less costly regulation, from new businesslike
approaches in state and local government to the structure of federal field operations, the
Academy is making significant contributions toward more effective public management.
II. DESCRIPTION OF THE PROBLEM
Background
The Intelligence Authorization Act for Fiscal Year 1988 (Title VII, Section 701)
requires the Director of Central Intelligence to contract with the National Academy of
Public Administration (NAPA) for a comprehensive review and comparative analysis of
the civilian personnel management and compensation systems of the Intelligence
Community. The analysis is to include an assessment of the adequacy of existing
personnel systems to support the missions of the various intelligence organizations.
NAPA is also directed to make recommendations for additional legislation and regulatory
or other changes that are deemed advisable to improve the effectiveness of the separate
systems.
The study is intended to be an objective, classified review of the Intelligence
Community's personnel management and compensation systems. The aim is to provide a
baseline understanding of the effect of these systems on the ability of intelligence
2
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
organizations to perform current and future missions. In carrying out the study, issues
and programs bearing on recruitment, retention, and effective management of employees
will be examined. Attention is to be paid to the consequences of pay and evaluation
aspects of personnel systems and to programs related to needs for certain critical skills
and occupations. Career development and employee support programs will also be
examined, as will infrastructure support for personnel management. The interim and
final reports will provide recommendations on proposed and potential legislation
affecting the intelligence personnel systems.
Study Objectives
The study will address the following broad issues:
o An examination of the need for significant change in existing Intelligence
Community human resource management systems given: (a) strategic trends in
the intelligence function; and (b) economic, social, and demographic trends in
the American society.
o An examination of present and planned Intelligence Community personnel
systems to ascertain if they will be able to attract and retain the highest
quality personnel through the 1990s, including identification of necessary
improvements and required legislative proposals.
o A comparison of Intelligence Community personnel systems with the Federal
civil service including identification and analysis of personnel issues facing the
Intelligence Community that may differ significantly from those facing the
Federal Government in general.
o A comparison of the personnel needs and requirements facing the individual
agencies of the Intelligence Community, with due regard for the differing
missions, risks, job requirements and environments of the agencies,
departments, and offices involved.
3
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
o Recommendations, if warranted, for legislative, regulatory, or other changes
in personnel and/or compensation programs based on the unique nature of
intelligence activities.
Specific issues to be examined
The NAPA Panel will conduct an initial analysis to develop comprehensive and
objective comparative data on the personnel management and compensation systems
affecting civilian personnel of agencies and entities of the Intelligence Community. This
data will include information on existing personnel management and compensation
systems and proposed changes to these systems.
For the purpose of the study, the "Intelligence Community" consists of the Central
Intelligence Agency, National Security Agency, Defense Intelligence Agency,
Department of State Bureau of Intelligence and Research, and the intelligence elements
of the Federal Bureau of Investigation and the military services.
- Project staff will prepare information requests to all elements of the Intelligence
Community in order to establish a preliminary list of issues and differences in policies
that the agencies believe should be examined in the course of this study. In addition, a
series of initial fact finding interviews will be conducted with appropriate staff of the
Intelligence Community agencies.
The data from these efforts plus any additional Congressional guidance will provide
the basis for selecting the specific areas for in-depth study. The depth and breadth of
each area selected for detailed study will be determined at the conclusion of the first
phase of the project. It is anticipated that not all agencies and entities of the
Intelligence Community need to be examined to the same degree for each issue
identified.
As requested in the Terms of Reference provided by the Intelligence Community
Staff, consideration will be given to the following issues in determining the areas for
detailed analysis.
o Competition. Intelligence Community competition for human resources is
primarily with the private sector. The total compensation package (pay,
benefits, and awards) should be evaluated to determine what needs to be done
to make the Intelligence Community competitive now and in the 1990s viz-a-
4
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
viz the private sector market.
o Security. Special security, cover, life-style, and professional restrictions
should be examined to determine if and how they should be recognized in the
total compensation packages.
o Rewards. Mechanisms and programs for rewarding employees should be
evaluated.
o Training. The resources necessary for retraining to meet changing staffing
requirements should be analyzed. Areas that should be assessed include the
adequacy of current training and employee development programs throughout
the Intelligence Community (as they relate to occupational skills training and
the availability of training) and the adequacy of resource commitments to
these endeavors.
o Work Environment. An assessment of the quality of work environment in each
agency, including availability of appropriate facilities and equipment as it
compares to corresponding elements in the private sector.
? Retirement Systems. Existing retirement systems should be evaluated as both
managerial tools for sustaining career system vitality as well as serving as
incentives for retaining employees. This analysis should reflect those events
such as government employment ceilings which cause age and promotion
bubbles to arise. The evaluation should emphasize problems of plateauing and
the need to ensure appropriate employee career progression.
o Flexibility. The study should explore the appropriateness and feasibility of
establishing alternatives to the General Schedule and/or restructuring the
General Schedule to provide greater management flexibility. The changing and
expanding nature of intelligence requirements and the growing
interdisciplinary, interagency character of intelligence work may require
managers to have greater flexibility in organizing their work force than
current regulations permit.
o Occupational Pay. Occupational pay should be evaluated as an approach to pay
5
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
administration.
o Leave and Benefits. Alternative methods of leave and benefits administration
should be evaluated with respect to the need to accommodate the modern work
force, which contains an increasing number of dual-income families and single
parents.
o Career development. The adequacy of career development programs in the
face of dynamic change should be examined. Attention should be paid to
existing and potential programs, including efforts to recognize the roles of
both supervisors and specialists.
o War-time operations. The potential impact of war-time operations on civilian
personnel should be addressed, especially with respect to the need for
continuity of critical functions in the U.S. and overseas.
Approach to The Study
1. The Academy will establish a five to seven member panel composed of persons
knowledgeable about intelligence, management, and personnel matters.
a. The panel composition, determined by NAPA in consultation with the
Director of Central Intelligence, will provide the widest possible perspective
on the personnel management issues confronting the intelligence community.
b. Panel meetings will be held as indicated in the schedule and at such other
points in the study as needed to review progress and provide guidance.
Individual Panel members may desire individual briefings by community
agencies on some issues.
2. During the initial staff analysis phase, the staff will:
a. Secure an on-site orientation on mission, organization, personnel numbers,
personnel policies, and current personnel issues of each of the organizations
and entities in the Intelligence Community.
6
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
b. Determine the major personnel management differences between these
organizations, including civilian and uniformed staff. Data will be developed
on the need for greater equity between organizations or the need for
significantly different personnel management systems.
c. Determine the critical personnel management problems faced by the
organizations such as skill shortages and the like.
d. Develop an inventory of personnel policy changes currently under
consideration or believed to be needed by each organization and entity.
e. Develop a record of statutory changes in Intelligence Community personnel
policies that Congress has approved over the last ten years.
f. Ascertain the strategic personnel management plans which define personnel
needs and the actions planned to meet the identified needs over the next five
to ten years.
g. Determine the need for surveys to secure individual views and perspectives
on selected issues. For example, a survey of individuals who declined
appointments with intelligence agencies may be appropriate. Or, a survey of
staff may be appropriate to secure views on specific issues where detailed
studies are being made.
This initial analysis will provide the basis for identification of the critical problems
which will be examined in depth and the methodologies to be used.
3. The Panel will have an initial meeting with key members of the Intelligence
Community as soon as necessary security clearances are secured to discuss the study and
to gain an appreciation of the major personnel management issues, short and long range,
which confront the community and to confirm agreement on study goals as produced by
the staffs initial analysis. The panel will approve the first interim report which will be
provided by April 25, 1988 for transmission to Congress on May 1.
4. Project staff will proceed with detailed analysis and develop plans for in-depth
analytical studies in those areas that have been approved by the Panel.
7
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
a. These studies may include historical analysis of experience and trends;
detailed examination of selected programs and practices; evaluation of quality
indicators; statistical data analysis; and comparative studies of non-
intelligence private and public organizations.
b. Based on the Conference Report for the Intelligence Authorization for
Fiscal Year 1988, a detailed analysis will be performed of existing and
proposed changes to personnel management and compensation systems aimed
at recruiting and retaining individuals with the skills critical to the various
missions of the agencies and entities of the Intelligence Community, e.g.,
mathematics, computer science, engineering, and foreign languages.
5. A Panel meeting will be held to review continuing staff progress and to approve
the second interim report which will present NAPA Panel conclusions reached at this
point in time. The NAPA Panel will provide this report by August 26, 1988 for
transmission to Congress by September 1.
6. Project staff reports on the detailed studies will include assessment of the
adequacy of current systems and changes recently implemented or being actively
considered by entities of the intelligence community.
a. A Panel meeting will be held to review results of staff analysis, to reach
tentative conclusions, and to identify where changes are needed in the
intelligence agencies' personnel management systems.
7. In accord with Panel guidance, project staff will develop recommendations for
legislative, regulatory or administrative changes in the personnel management systems of
the intelligence agencies.
a. A Panel meeting will be held to consider staff proposals. The Panel may
meet with former intelligence community leaders to test tentative conclusions
and recommendations.
b. The Panel will reach conclusions and recommendations and provide staff
guidance on preparation of the final report.
8
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
8. A draft report will be written and presented to the Director of Central
Intelligence by the NAPA Panel. The Director of Central Intelligence will be asked to
comment on the draft. The Panel will carefully consider the comments received from
the Director of Central Intelligence in reaching its final conclusions and
recommendations.
9. A final report will be issued to the Director of Central Intelligence by January
16, 1989 for transmittal to Congress by January 20, 1989.
10. During the course of the study, meetings will be held as needed with the Study
Steering Group (SSG) composed of representatives of the intelligence organizations
participating in the study and chaired by a member of the Intelligence Community
Staff. These meetings will be held to review progress and secure guidance at critical
points in the study. Further the SSG will:
a. provide NAPA early advice on the new or substantially modified personnel
and compensations programs planned for early implementation so that they can
be evaluated for the interim reports to be provided to the Congress.
b. be provided an opportunity to review the proposed interim and final reports
before they are transmitted to the DCI.
IIL STUDY MANAGEMENT
Organization
The National Academy study process is designed for both speed and flexibility.
Study teams are recruited to fit specific projects, not vice versa. Working with a stable
of potential project staff, the National Academy builds a hand-picked study team in
response to the given task.
Within the permanent National Academy staff, the president is ultimately
responsible for final decisions on staff and study design. Those decisions are made
following initial review by the Director of Academy Studies. The National Academy has
already recruited a project director who will act as contract manager for the Personnel
9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Study of the Intelligence Community. That individual will report to the Director of
Academy Studies regarding the development of specific study initiatives.
Once specific tasks are defined, the Project Director will recruit project staff from
a group who have also agreed in advance to be available on short notice. Those
individuals have been selected for their broad knowledge of human resources
management in the Intelligence Community agencies and will bring specific skills to bear
on categories of work desired in the proposed contract. Unlike private organizations
which must find projects to fit permanent staff, the National Academy is free to recruit
personnel to match task needs. Its reputation as a national leader on government
management attracts the highest calibre individuals for study teams.
Depending on the nature of the task, the National Academy also selects a panel of
members and other experts to oversee the project and develop final recommendations.
Each panel is also hand-picked to match the specific needs of the contract. The panel
device offers the opportunity to tap the expertise of the National Academy's 350
members. Participation on such panels viewed as a responsibility of membership.
The organization chart of the National Academy is Attachment A to show the
customary method of organization. In the case of this RFP the Academy's flow of work
will be adapted to the needs of the contracting agency while at the same time
maintaining a high level of quality assurance. The Academy's Quality Assurance Policy
will be modified to adapt to security considerations.
As to the management of finances, the chief financial officer, assisted by the
support staff, assures adequate contractual controls as to cost accumulation, cost
management and accurate billings to the Government.
Project Management
Overall study direction will be provided by a panel of persons knowledgeable about
Intelligence Management and personnel matters. Day to day direction will be provided
by the Project Director and the Deputy Project Director. These two individuals will be
responsible for all staff assignments, management of study costs, adherence to the study
schedule, and the required reporting.
10
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11 CIA-RDP90-00530R000601640001-9
Staff Estimates
The estimated staff projected for this study consists of:
1.
Five to seven Panel members
25-40 days
2.
Senior Research Associate (Project Director)
125 days
3.
Senior Research Associate
(Deputy Project Director)
130 days
4.
Research Associate
140 days
5.
Additional Research Associates on an
as needed basis - up to
150 days
6.
Administrative Assistant
150 days
7.
Secretary
150 days
The SSG will identify within each participating agency or entity a focal point for
all study related activity within that organization, including responses to NAPA's
requests for information.
Resource Availability
NAPA has on its staff a highly qualified survey expert who will be available if
surveys are utilized in this study.
Facilities
To be provided by the contracting organization.
11
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
Security
The contracting organization's security plan will be utilized.
IV. PERSONNEL
Panel
The Panel for this project will be selected from among those persons listed on
Attachment B to provide the widest possible perspective on the personnel management
issued confronting the Intelligence Community.
The NAPA Panel, interacting with the staff and the Intelligence Community will
provide great depth of experience not only in understanding the intelligence mission and
the issues but also in determining what actions would help improve human resources
management throughout the community. Panel members will be allowed to include
dissenting or additional views if consensus is not reached on report contents or
recommendations. STAT
Staff
STAT
The two senior people who will conduct the on site work are who will
serve as Project Director and Frank Yeager, who will be Deputy Project Director,
executive career is characterized by his ability to understand organizational
cultures and to appreciate their diversity. His experience includes executive posts in the
Atomic Energy Commission, the Office of Economic Opportunity, the Social Security
Administration and the Central Intelligence Agency. Yeager, who held a number of
executive positions including Director of Personnel at the Department of Labor, has had
considerable experience in developing personnel management programs for highly
professional staff. His doctoral dissertation was on performance appraisal. Biographical
material on both individuals is at Attachment C. They will be assisted by selected
research associates and an executive assistant.
12
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11 CIA-RDP90-00530R000601640001-9
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9
?
Security Clearances
Security clearances for all persons utilized in this study will be requested of the
contracting organization.
IntellProp/ams
13
Declassified in Part - Sanitized Copy Approved for Release 2013/01/11: CIA-RDP90-00530R000601640001-9