SCOPE AND METHODOLOGY

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00530R000100110007-7
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 14
• Document Creation Date: December 23, 2016
• Document Release Date: February 22, 2013
• Sequence Number: 7
• Publication Date: December 7, 1988
• Content Type: MISC

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APPENDIX A
SCOPE AND METHODOLOGY
In the fiscal year 1988 Intelligence Authorization Act (Title
VII, Section 701), the Congress directed that the National Academy
of Public Administration (NAPA) perform a comprehensive review and
comparative analysis of the civilian personnel management and
compensation systems of the Intelligence Community (IC). The study,
to be completed by January 20, 1989, was to include two interim
reports, due May 1 and August 1, 1988. To meet this mandate, the
Intelligence Community (IC) Staff contracted with NAPA, using funds
the Congress earmarked for this purpose.
The Congress directed the Academy panel to recommend changes,
if warranted, in legislative, regulatory, or other areas in the
personnel and/or compensation programs to improve the effectiveness
of the personnel systems of the IC agencies and to ensure they are
able to accomplish their missions in the years ahead.
To undertake this work, NAPA created a team of experienced
executives, drawing them from among its membership and the b(roader
community of current and retired public and private sector
individuals. Panel members, whose brief bio statements appear at
the end of Volume I of this report, are:
Philip A. Odeen, Chair
Regional Managing Partner
Coopers and Lybrand
Hon. Julius W. Becton
Director
Federal Emergency Management Agency
Dr. James Colvard
Asst. Director for Tactical Systems
Applied Physics Lab, Johns Hopkins University
Admiral Bobby R. Inman
Chairman and CEO
Westmark Systems, Inc.
Hon. Carol Laise
Ambassador, Retired
Fred Meuter
Manager, Executive Compensation
Xerox Corporation
William G. Miller
President
American Committee on U.S. Soviet Relations
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The panel was assisted by a staff whose experience included
executive and legislative branch and intelligence agency positions.
Project Director was Don I. Wortman, former Deputy Director for
Administration of the Central Intelligence Agency and currently
Director of Federal Programs at the National Academy.
To assist the panel, the IC established a Study Steering
Committee (SSG) to coordinate NAPA information requests and provide
assistance in obtaining individual agency data or Community-wide
responses. Composed of senior personnel staff from each
intelligence agency, the members -- individually and as a group --
played a key role in facilitating the work of this study. The IC's
Office of*PolfZ7land Planning was a focal point on these efforts.
In preparing its study design, the NAPA panel reviewed the
requirements stated in the Authorization Act. These required that
the panel:
Examine the need for major change in the existing IC
personnel systems given the strategic trends in the
intelligence function and the economic, social, and
demographic trends in U.S. society.
Examine these personnel systems to ascertain if they will
be adequate to attract and retain the highest quality
personnel through the 1990s.
Analyze personnel issues facing the IC that may differ
greatly from those facing the federal government in general.
Compare the personnel needs and requirements facing the
individual IC agencies, with due regard for the differing
missions, risks, job requirements and environments of the
organizations in the community.
After further refining the subjects it would address, the seven
member NAPA panel, assisted by its project staff, reviewed issues
which encompass:
How anticipated changes in the U.S. workforce will affect
intelligence agencies.
The impact of future intelligence requirements on human
resource management systems, and how these systems might be
organized to meet changing needs.
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Different levels of compensation within the intelligence
agencies and how they compare to the rest of the federal
government and the private sector.
Recruitment and retention , especially as they relate to
critical skill occupations, and whether personnel security
requirements adversely affect agencies' ability to get
quality staff.
How well the agency career development and training
programs support current and future mission accomplishment.
Efforts the agencies have undertaken to make their
workforces more representative of all groups within the
U.S. population, and whether current levels of effort will
enable the agencies to continue to diversify their
workforces.
In addition, the Senate Select Committee on Intelligence
requested that NAPA review IC personnel costs and make appropriate
recommendations on ways to constrain these costs without adversely
affecting intelligence missions.
At the outset, the IC Staff, working with the SSG, developed
the broad terms of reference for the study, which became part of the
contract work statement. (See Attachment A to this Appendix.)
Early Data Gathering
NAPA requested background material from each agency on their:
- Organization, Mission and Structure
- Personnel authorities and internal organization
- Recent requests for statutory or regulatory change,
whether obtained or not.
- Experience in recruiting and retaining people
with critical skills
Personnel policies and practices
Anticipated future workforce issues
- Competition among IC agencies in personnel programs
- Other major issues/problems in personnel programs
- Agency views on Terms of Reference issues
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After reviewing the data supplied by the intelligence agencies,
NAPA staff met with the SSG, at their suggestion, for an intensive
two day series of briefings on these topics. The sessions provided
extensive familiarization in a compressed period, and permitted the
NAPA staff and the IC personnel to have a very useful give-and-take.
Structuring the Work Approach
Using this information as a base, the NAPA staff interviewed
intelligence agency officials and prepared a summary of each
agency's personnel authorities, practices and major issues. Acting
on behalf of the panel, NAPA project staff also reviewed working
papers of the Senate Select Committee on Intelligence, which had
itself conducted a review of IC agency human resource policies.
Because the Iran-Contra hearings arose just as the committee staff
members were preparing the SSCI report, it was not finalized. The
Committee decided not to prepare a final report -- and it may not do
so at all -- until it reviews the NAPA report.
At its April 1 meeting, the panel reviewed all of this material
and devised the workplan which served as the framework for most of
the analysis. Also at its April 1 meeting, the panel met with the
Senior Policy Management Group, which was established to provide
top-level input, should the panel desire it. These senior
representatives and staff of the House and Senate intelligence
committees joined the panel in a policy-level discussion of major
HRM issues facing the Intelligence Community.
The nine areas the panel selected for primary focus were:
Intelligence Community uniqueness
Future mission of IC agencies
Workforce of the future
Creating a more diverse workforce
Staffing
Training and career development
Personnel security
Compensation and benefits
Organizational issues
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The panel requested and the intelligence agencies supplied
detailed information in each of these areas. The panel requested a
great deal of trend data, particularly because the 1980s were a
period of major staff growth for most agencies in the IC. Thus,
much of the panel's analysis was based on intra- and inter-agency
comparisons.
Having made its basic decisions as to scope of work and
methodology for undertaking it, the panel reported this to the
Congress in its first interim report, delivered through the DCI on
May 1, 1988.
Preparing the Analysis
For each of the nine areas addressed, the staff developed for
the panel a series of analyses of major issues within them. Each
analysis addressed: current status, reason for the condition,
impact of the situation, and draft conclusions/recommendations. The
detailed papers which resulted from these analyses are included as
Volume II of this report.
The panel met July 12 to review the analyses for future
mission, workforce of the future, IC agency uniqueness, staffing,
training and career development and personnel security. Based on
the panel's decisions at that meeting, staff prepared for panel
review the second interim report to Congress.
The panel carefully considered how to approach the complex area
of compensation and benefits. At its July meeting, the panel
approved dividing this work into three areas: comparative analysis
of agency compensation policies and practices; review of private
sector compensation systems; and study of specific NSA and CIA
proposals. At its September 30 meeting, the panel reviewed the
detailed analyses in these areas, and specifically recommended that
the CIA be permitted to proceed with its proposal for a flexible
benefits plan. The agency did not need statutory approval to pursue
this, and the panel saw no reason for the CIA to delay
implementation until the panel issued its final report.
Also at the September meeting, the panel reviewed material it
had specifically asked be developed on agency separation and
outplacement programs, and the ability of intelligence agencies to
hire retired military personnel for work for which expertise could
only be acquired through military service. The panel also
determined its position on which of several organizational
alternatives it believed would enable the Intelligence Community to
better coordinate human resource change proposals.
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Based on these issue analyses, the panel developed its
recommendations, as reflected in Volume I of the final report.
Quality Assurance through Product Review
As it prepared all staff papers and report drafts, NAPA sought
comments from the IC Study Steering Group. This input, never
designed to persuade the panel to alter its judgment, ensured
accurate interpretation of information and helped the panel frame
its products in a manner that would make them more usable
decision-making tools.
Each panel member also individually reviewed the interim and
final reports. For the final, the panel met October 31, 1988 to
discuss members' reactions at length. Based on this feedback, the
NAPA project staff refined the final report, which was again
reviewed by all panel members.
398/ November 30, 1988
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AtLacnment A
to
Appendix A
January 20, 1_988
Study of Intelligence Personnel Systems
Terms of Reference
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.
Scope and Emphasis
For the purpose of the study, the "Intelligence Community" will be CIA,
NSA, DIA, State/INR, FBI/Ed, and the intelligence elements of the military
services.
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
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the ability of intelligence organizations to perform current and future
missions. In carrying out the study, NAPA will examine issues and programs
bearing on recruitment, retention, and effective management of employees.
Attention should 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 should also
be examined, as should infrastructure support for personnel management. The
interim and final reports should also provide NAPA's recommendations regarding
proposed and potential legislation affecting the intelligence personnel
systems.
Broad Objectives
The study should achieve the following broad objectives:
o An examination of the need for significant change in existing
Intelligence Community human resource management systems implied in
current economic, social, and demographic trends.
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 and specification 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
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personnel issues facing the Intelligence Community that differ
significantly from those facing the federal government in general.
o A comparison of the personnel needs and requirements facing the
individual members of the Intelligence Community, with due regard for
the differing missions, risks, job requirements and environments of
the agencies, departments, and offices involved.
? Recommendations, if warranted, for legislative, regulative, or other
changes in personnel and/or compensation programs based on the unique
nature of intelligence activities.
Areas of Inquiry
In the course of meeting the broad objectives, the study should address
the following specific areas:
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 in
the 1990s in the private sector market in which it competes.
o Security Special security, cover, lifestyle, and professional
restrictions should be examined to determine how they should be
recognized in the total compensation packages.
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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 The quality of work environment in each agency,
including availability of appropriate facilities and equipment,
should be compared with corresponding elements in the private sector.
? Retirement Systems Existing retirement systems should be evaluated
as both a managerial tool and an employee incentive. The focus here
should be derived from the vagaries of ceiling and special skill
needs and the consequent expectation that age and promotion bubbles
will arise. The evaluation should emphasize problems of plateauing
and the need to ensure appropriate employee throughput.
o Flexibility The changing and expanding nature of intelligence
requirements and the growing interdisciplinary, interagency character
of intelligence work require managers to have greater staffing and
pay flexibility in organizing the work force. The study should
explore the appropriateness and feasibility of establishing
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alternatives to the General Schedule and/or restructuring the General
Schedule to provide greater management flexibility.
o Occupational Pay Occupational pay should be evaluated as an approach
to pay administration.
o Leave and Benefits Alternative leave and benefit programs 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 managers and specialists. .
o Wartime Operations The potential impact of wartime operations on
civilan personnel should be addressed, especially with respect to the
need for continuity of critical functions in the US and overseas.
Steering and Guidance
A Study Steering Group (SSG), chaired by a member of the Intelligence
Community Staff, with representatives (one each) from the Central Intelligence
Agency, the National Security Agency, the Defense Intelligence Agency, the
Department of State's Bureau of Intelligence and Research, the Federal Bureau
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of Investigation, and US Army Intelligence (representing all the military
services) will be formed to guide and facilitate NAPA's work, to assure that
necessary support is provided from participating agencies, and to assist the
Intelligence Community Staff in carrying out its role as agent for the DCI in
reviewing and overseeing the study. The Intelligence Community staff will
provide the Contracting Officer's Technical Representative (COTR) for the
study.
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. NAPA will coordinate all of its
activities through these focal points. Both NAPA and the focal points will
keep the COTR and SSG aware of progress and problems.
The SSG will receive guidance and overall direction from a Study
Management Policy Group (SMPG). The SMPG will be chaired by the Director of
the Intelligence Community Staff and will be composed of NFIC-level
representatives of the intelligence organizations participating in the study.
The SMPG will act for the DCI in the review of the interim reports and will
make recommendations to the DCI regarding the final report.
Security
Names of the NAPA study team and panel will be provided to the COTR prior
to commencement of the study to assure that necessary clearances are obtained
from participating organizations.
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The COTR will determine that NAPA is Provided with suitable secure office
space and storage facilities. The focal point for each organization will make
such arrangements as may be necessary for office space and secure storage
facilities in individual organizational locations.
Methodology and Study Organization
NAPA shall be responsible for the proposal of a study methodology and
organization which shall be subject to the approval of the COTR after
consultation with the Study Steering Group. The COTR will convey to NAPA any
special study focus and guidance received from the Congressional Oversight
Committees when it becomes available. In defining the study's scope and
tasks, NAPA's proposal shall take into account the funding constraints in the
authorizing legislation as well as timing and other considerations required
for the interim and final reports.
Timing and Reports
The study will begin as soon as practicable after 1 January 1988. NAPA
will provide interim reports on 1 May and 1 August 1988. The study will be
concluded and a final report provided by the DCI to the Oversight Committees
on or before 20 January 1989.
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The purpose of the interim reports is to provide a means for an assessment
by the Congress of new or substantially modified programs and compensations
planned for early implementation. In view of the limited time available to
develop the interim reports, the SSG should advise NAPA early in the study
which such programs should be evaluated. In addition to a report of progress
on the study in general, of particular interest is an analysis of existing or
proposed changes to personnel management and compensation systems aimed at
recruiting or retaining individuals with skills critical to the missions of
the Intelligence Community.
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