OP ACTION ITEM FROM IG'S REPORT ON TRAINING

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80-01826R001100070021-4
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 30
• Document Creation Date: December 12, 2016
• Document Release Date: January 30, 2002
• Sequence Number: 21
• Content Type: REPORT

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' A .01; ITEM 1LOM 1018 RiiOk1 N11E41.'1111W
BeeoiTh3nd
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,
',Aim assigned t e/Pera
1eco&mjation8 DTR experiment with the concept of a board of overseers of
senior gride professional officers as a means of ilk:proved communication with
and indoctraintion of comments, and to promote the development of more effec-
biVe policies on cerrioulum and development.
MO Comment: While the Director of Training and I both are milling to expert.
ment eiih the concept of a board of overseers, we are not convinced that such
a board is necessary. We shall be intereeted in learning the views of the
DTVP and DD/I.
I believe, of course, that training policies and programs form an essential
and inseparable part of the Agency personnel development program, including mid.
oaraer and senior officer developmente The Director of Pereonnel has recently
proposed that the Career Council be responsible for the total Agency personnel
development program, and that the efforts of the Office of Training and the Office
of Personnel tovard the single objective be united under the aegis of the Career
Councile Beoauee the forthcoming Career Development Board ray be a mochenism
by which the Career Council oneuree that training policies and prograes are
incorporated in the total development program,. the Council has deferred active.
tion of the Board as it ueo originally conceived. The Director of Training and
the Director of Personnel believe that their programs can be effectively into.-
grated and implemented through the functioning of the Career Development Board.
They agree, for examples to alternate the chairmanship of the Board between
them in accordance with the nature of the matters before the Board. This type
of arrangement to blend the efforts of these twe _support offices under the
aegis of the Career Councd1 iee, in my opinion, an example of realistic planning
for Agency use of the Director of Training and his resources.
Action: Azzszy.td with action to OTR in close cooperation with DR and
DDI with due consideration to the ties between the
board of overseers and the forthcoming Career Develop-
25X1A ment Board.
OTB Proposed Attion; Suggest WR recommend to DDIs the temporary appointment
of three officers- one or two from each Deputy Directorate at the level of
tnd Mr. Sheldon, to serve as an experimental
board or overseers to review curelculum and enrollment policies. nTR to suggest
a modus operandi for their operation as a board of overseers. (For examn1T:
annual or semi.annuel report and briefing
NOTE: OTR proposes to incorporate this item for action purposes with
Recommendations No, 20 and 22 which follow.)
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------vbo vas unawaie of the existence of
bibliography of the collecti
and appropriate offic
he collection. Since completion of a
es some distance in future, its Curator
In OTR ShOuld collet) te on the deve ent of an
25X1A Appropriate wo g"dollection of open erature and effective
25X1A
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publicizi
at
of the existence and
quarters.
ential usefuln of the parent collection
g. Present State of the Training Curriculum
(1) The content and balance of the curriculum now offered
at headquarters reflects the current situation in training
doctrine. There is marked instability in content, scheduling, and enrollment.
(2) Various operating offices have experimented with permissiv
job standards outlining minimum formal training judged desirable fOr various bas
categories of assignments. Thus far, however, these have had relatively limited
effect in determining who receives what training preparatory to a given assignme
(3) where the enrollment of JOTts for basic
training is controlled, curriculum problema include: (a) insufficient time to
fit tradecraft and more specialized operations training into a crowded schedule,
and (b) concern that the benefits of training will be lost before the individual
has opportunity to apply them in practice, or that the content is meaningless
until he gains operating experience. Many operating officials express the
25X1A opinion that the
25X1A
curriculum still does not train in investigative
technique and interrogation to the degree of proficiency that should be required
of any case officer. The students themselves testify that tradecraft training
In secret writing,
for example, is sub-
stantially lost over the intervening two years before overseas assignment.
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25X1A (4) The junior office graduating
0070021-4
races a sizeable
and growing list of advanced training courses as well as the formidable demanda
of language and area training limited only by the specialization dictated. by his
first assignment. At the present time JOTIB, both in apprentice status and
permanently assigned to operating offices, comprise less than 10 per cent of
the total DD/P professional personnel for wbom the advanced operations courses
have been designed. Yet given both JOT and non-JOT sources of possible demand
for training these courses have not drawn and are not drawing sufficient enroll-
ments to sustain themselves. The typical pattern for any new course has been a
mildly coerced adequate enrollment for the first presentation, then a stew*
decline with intermittent cancellations when student numbers have been?too small
to promise reasonable classroom discussion or to justify tying up training
instructors and facilities. OTR officials cited eight situations of this kind in
a memprandum on the subject in December 1958. The Chief Instructor for Head-
quarters Operations Training reported in May of this year that there had been no
improvement in the intervening eighteen months.
(5) The explanations of DD/P line officers concerning low
enrollments are varied. Considerable scepticism is expressed about training for
training's sake. The present generation of executives has had minimum formal
training and believes firmly in learning on-the-job under experienced senior
officers. Many believe that the training of their subordinates is now reaching
the saturation point and that small enrollments are inevitable. Operational
priorities and current ceilins on manpower cause many branch chiefs to insist
that they cannot release individuals for training without increase in T/0 for
that purpose. There is some opinion, but no consensus, that sanctions will be
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required, such as those now being experimented with in the Foreign Service, to
solve the enrollment problem. These may include a more powerful central personn&.
management to oversee personnel assignment decisions, the development and enforce-
ment of job standards, and a policy that makes promotion contingent on satis-
faction of training requirements.
(6) The problem derives in part from faulty communication
between the authorities concerned. The line command will not acquire indoctrina-
tion in the values of formal training without more awareness of training programs
and policies. Confidence in the curriculum and reasonable enrollments will not
appear overnight and certainly cannot be achieved by decree. OTR has briefed
parties of line commanders on 'activities in the past but the contacts
have been too brief and intermittent. In spite of all of the hazards of bureau-
cratic procedure, ,OTR should experiment with the concept of Boards of Overseers
composed of senior grade officers from the Directorates rotated to the assignment
for relatively brief periods of three to six months, who will meet regularly with
the training management and faculty for detailed briefings and project investigatic
/'
of current problems. The problem is one of leadership and it rests with the
Director of Training and the Deputy Directors of the Agency.
h. The Future of Paramilitary TraininF
(1) T7e racuitiesi Ivhich are concerned with para-
military training mo d to standby status sh tly following the e f the Korean
War. Emphasis chhed from the training active participants n paramilitary
operations tohe indoctrination of ca9iofficers in the pot ntial of PM so that
they could .r?cognize possible applications and call in the experts to perform
f'
detailed planning and execution.
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ndation No 6
0
f Re
1.t,19.4011)...tens Tho rim establish a JOT SeIeetion Panel composed of line ?Me
oar repreasatettan from the three Deputy Directorates together with appropriate
representation feem the ?Moe of Personnel and Training. The Chief, JOTP,
should chair the panel.
LuksamtvI agree with the principle that the Deputy DirsetarraVaas through
representation* should play a role in the eeleotion of alto, I do not* howeeer,
believe that it is necesaary to establish another, separate,. JOT Selection Panel
for this purpose. Rather, I would strongly prefer to have thoughtfully selected,
experienced representatives of the DO/P, DD/I end DD/S serve rotational tours of
duty as training officers on the JODI' staff, Mere* as I have set forth in my
introductory remarks* those officers can moat effectively participate in the JOT
lection and placement processes.
Mc; Aet,tene 4pOrCTO.
orR Pr sod ActiQnz DTR request assignees to such a panel* and recommend pro-.
ceures forIta operation. Such a Panel should be chaired bv C/JOTP. and include
25X1 A such rembers as k It
should be briefec oy you're on current selection placement actions completed,
review selected individual cases if desired*. etc. NOTE: This suggpsts a review
panel, not an action panel to aocomplish selection and placeRent.
e dation N- 2
,nda- oni The DTR arrange for the participation on a rotational bowie of
(e iaer representation from the throe Deputy Directorates in jOTP plaoe-
ment panels..
DVS Cont: Concur, but I lx,1ieve that this can be accomplished most effect-
ively: ancl efficiently by Deputy Directorate representation on the Jon, Staff, on
a rotational assignment basis, as proposed. in Tab 20, (Ocament on Recommendation
No. 20 quoted above.)
DD01 Action: Approved.
112LbmsteisLAp1122: Accompliehed by 20, above.
(Refert; to Recommendation No. 20.)
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1. The JOTP has achieved solid acceptance in the Agency by
locating students of high characte nd demonstrated academic performance,
then instructing and motivat them in the object and methods of
intelligence to the'. poi where they pt to and become produc-
tive in 'operating signments. Once ted from the JOT?, the
stiffest test if all is the will ess and ability of the JOT to fend
for bins
Future of the JOT Program
a. Recruitment
(1) Numerous policy questions arise in this area of
administration of the JOT system. Many of these stand out in a comparison
of the JOTP with the Foreign Service Officer recruitment program in the
Department of State. By contrast, the JOTP administration has enjoyed
singular freedom of action while the Department has been subject to
:constant public and Congressional examination particularly as an out-
growth of the work of the Wriston Committee. New rules and structure
may be imposed on the JOTP to achieve specific benefits but at consider-
able risk of hampering the positive leadership the program has enjoyed
thus far. The Departmentrs policies and experience should, however, be
followed closely with the intention of adopting and profiting from
measures of proven benefit. '
(2) JOT recruitment does not assuredly reach all
American citizens who may possess suitable qualifications for careers in
CIA. The absence of a publicly advertised, competitive entrance test,
and the use of professional officers on recruitment tours (as now
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practiced in the case of ORR) would remove any doubt that the Agency does
not adequately protect the inherent privilege of citizens to learn of and
to' apply for employlent with it.
(3)* There is no requirement that the JOTP balance its
appointments by State or region of origin and schooling. While the present
patterns of recruitment do not appear to be seriously out of balance in
this respect there are aspects of the Agency's policy here which will
bear observation. The first is the possible political implication at
some time in the future of disproportionately low representation of
officers from the South and to a lesser extent from the Far West. The
second concerns heavy recruitment of students from Ivy League schools
and the possible influences on loyalty to associates and judgment of
individual Performance which this circumstance may be alleged to generate.
(4) The JOTP administration may be assuming excessive
responsibility in the screening and selection of junior officer candidates.
This same issue is noted below in connection with the final assessment
and assignment of JOT's to active duty. As the JOTP assumes increasing
responsibility for determining the types of individuals who are to man
the Agency it seems obvious that the current operating experience of
senior professional officers should be brought to bear in making the
decision. There are today fairly numerous consumer comments that present
JOTP selections tend to overemphasize intellectual qualities and to
underemphasize rugged and adventurous traits. A policy of panel examina-
tion of top candidates with professional line officers included on the
panels would insure JOTP sensitivity to Agency needs at this point.
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(5) There is a second possible source of independent
judgment cf applicant qualifications in the use of outstanding public
citizens in the panel selection process. These individuals may have
the handicap of linated acquaintance with intelligence but they may also
contribute useful insight based on long experience in governmep,
corporation or university administration.
b. Agency Sponsorship of JOT Military Duty
From its inception, the JOTP has sponsored military
duty for candidates who have not fulfilled this requireme and whose
service would probably be lost to the Agency unless ployment were
arranged rior to military service. A notewortl,feature of the
program ha een the arrangement with the Se _ces to detail the JOT
;
officer back t, the Agency for the last if 24 months of his active
\,
duty status. DurIg the first eight y ars there were 141 cases of
military sponsorship \f which 83 o 59 per cent remained on duty at
the end of the period. pro am has been expensive to the Agency
in loss of time from intelli nee training and in the high attrition
N,
suffered. The JOTP has b n abi to recruit the majority of tts
studerts with military .raining alrN.dy accomplished. , recently
introduced fa7!tot situation is th6,dectsion to give selected
JOT's additionel, ,rmai training in paramilitiq suLject. A correla-
tion of the. 'yt, blocks of training may prov' 1.-,o:sible and of be.:efit
if
to the Av_
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for the future. (The p5911,14F1L of t tnin a. alists.for
-
profession is)PP- teed more fully/
entit Lang the Spec
d. Placement of JOV4,
) The MTP exeF4iell idOetential free4
went and allocation -of JOT's to special training
in operating offices for on-the-job training. Part of the explanation
lies with the Agency, part with the JOT's themselves._
(2) Few if any Agency components have Successfully
projected manpower requirements several years into the future either in
terms of numbers or special qualifications. Any projected division
requirement for a given number of officers with specific language, area,
or other competence may have doubled or evaporated three years hence
depending on.a host of possible developments. In consequence, operating
offices have been forced to limit their specifications to the general
qualifications of character, educational performance, linguistic aptitude
and personality. The JOTP has employed educational and psychological
screening as aids to JOT selection but in the last pnalysis has relied
on its collective judgment based on long experience.
. (3) The Program has also shown considerable tolerance
toward the preferences of the individual JOT, both at time of selection
for specialized, e.g., case officer, training and later in the selection
of a job assignmel.t. Some men with excellent qualifications for the DD/I
and DD/S can regularly be expected to find the DD/P more attractive. Thus
it is not certain at this stage that the new DD/I and DD/S quotas can be
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re is an underetandabivitat
in addition there is a subtle ihstructor'and:
lection to the DD/P as success and
as second 'rink" performance.
even in the recruitmaa?
?
to the DD/P career
eat climate that
op to the other Direc-
ces this climate is
OTR and the Office of
Personnel must =stet these prejudicii vit.41.ifgai'if-they are to eater
successfully to the basic needs of the DD/I and DD/S.
(4) The JOTP and the Directorates are overly isolated
from each other and communication on junior officer training policies at
the intermediate command levels is clearly deficient. One answer, as with
recruitment,. is to rotate line officers to serve on JOTP panels that Wm
basic.decisions so that their advice on placement policy will be assured.
The JOTP will acquire a convincing base for its judgments and the line
officOls will return to their regular duties with increased awareness of
training and personnel development policies.
- e. Attrition among JOT's
(1) It was noted earlier that the JOT is expected to
stand on his own two feet following graduation from JOTP sponsorship.
How' well he is succeeding in doing so is a matter of obvious concern to
trainers for the light it may shed on the effectiveness of selection,
instruction and motivation. The subject is of increasing interest in
the Agency; however, there is as yet no systematic program for review of
JOT careers and identification of adjustment problems before they mature
to the point of resignation. Both the Office of Personnel and the
Inspector General Staff conduct resignation intervievt, and the Directors
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(7) There is no pattern in the scheduling of overseas
-duty. The prospect of overseas assignment is a significant factor inJ
recruitment and therefore a possible source of frustration *0 the
officer finds his initial headquarters tour stretChing into the'tlire-
ocoasionally the fourth year. /be present prospect is that
will grow in importance as the four-year or lobger tour of day he
standard Agency practice. It is conceivable that the DD/P will have to
establish a ceiling on the number of months of headquarters duty the
pnior Officer shall serve prior to assignment overseas.
(8) Another approach to the concept of apprenticeship
is to schedule some of it overseas including formal training in language
and area. This has the appeal of realism and the drawbacks of greater
expense and difficulty in finding supervisors who are qualified and
motivated to 'work with junior officers and who can find the time under
operating pressures to provide effective guidance. The prospect spf a
large influx of JOT'S into the DD/P annwoly only two years hence makes
it appear desirable to experiment now with this approach.
(9) Problems in the management of JOT's with 10 or 15
years of experience as case officers lie some distance in the future.
With respect to the question of formal or refresher training for such
officers, the present
mid-career and senior
at this stage will be
experimentation of the Department of State 1.eith
officer training is of interest. Many officers
moving into chief of base and deputy chief of
station assignments for which as yet there is no fornal preparation.
The question of diversification of experience through rotation is one
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which faces the senior JOT graduates, and non-JOT's, I at the present time.
'There is insufficient evidence for 'generalization but in scme cases the
experience here has been disoouraging.
the conviction thaCaiversification is a
said. socopplished by knowing the
at the right time. Well qualified officert
JOTes now te.
--)ersonal ini
sui
vacancies only to find that the concernoftWeepleYing Branch Ayr its
own, perhaps less well qualified individualsbad Precluded appointment.
The net result then is frustration and possible resignation for the
individual and haphazard administration of the broad personnel Objectives
of the Directorate. The power of decision here lies with the Branch
Chief. The Panel system of Career management as now constituted doesn't
really, get at the problems involved. In some manner, particularly in
the .mse of highly qualified and expensively trained JOT's, it will be
essential that the DD/P, and in time the DD/I and DD/S, provide for a
more orderly personnel administration. The career officer must know what
to expect and how to plan the broad outlines of his career. The Depart-
ment of State is also experimenting with this problem as a result of
severe criticism by the Wriston Committee of its previous informal
practices. Recent State innovations include the development of training
and experience standards for'all Foreign Service positions, the establish-
ment of an inventory system on punched yards to record individual training
status and to derive annual training requirements, the Imposition of
sanctions to enforce training policy including a requirement that language
competence be a prerequisite to advancement, and, finally, the creation
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of a Career DeVOtSment and Counselliug rienoed Foreign
Service Officers lip ...advise on personnl poljcI and meniter the career
X1/00114Twg of ind4AdO3. OCficers. These
inetrUMents of a fOrFer4 100144* .Pere
they neeeesertli_eo the P01401 of
Observation wit they** suggestive
Agency may need to move if it experiences serve attrition among its
most highly qualified and carefully trained personnel.
It is recommended that:
(a) The DCI establish as Agency policy that all junior
professional officers enter Agency eMploy through the JOMP
(b) The DTR establish a JOT Selection Panel composed of
line officer representation from the three Deputy Directorates
tpgpther with appropriate rppreseiitation from the Office of
Personnel and Training. The Chief, JOTP, should chair the panel.
(c) The DTR should give consideration to the feasibility of
the use of outstanding public citizens in the panel selection
process recommended above.
(d) The DTR arrange for the participation on a rotational
basis of line officer representation from the three Deputy
Directorates in JO TP placement panels.
(e) The DTR together with the Director of Personnel take
steps to eliminate prejudices that have arisen which tend to
assign second class status to DD/S and DD/I careers.
(0 The DD/P establish minimum standards of training and
experience for case officer apprenticeship including general
preparatory, basic skills, language and advanced operational
training, and that he determine the feasibility by experiment
of same form of overseas familiarization as a part of the
apprentice period.
(g) The DTR together with the Director of Personnel undertake
to monitor the present efforts of the Department of State to
improve personnel management and training in the Foreign Service
for measures that may be adopted for the Agency's benefit.
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OP Acric:14 ?1.124 14{.om ICI'S aKezT O THAINIW
Recommendati
;x0/Pers OP Work project No. 23-61
Ineoommendations The DCI authorize and direct the establishment of a mid-career
training course for officers at the 03-12 and -13 level in order to prepare them
for broader responsibilities particularly in the field of command, to refresh
their motivation in the intelligence service and to broaden their understanding
of the interrelationship of Agency functions.
1)D /s Comments Concur. OM has done some preliminary research and planning for
such a course ands in facts already offers some training in separates functional
courses at this level, such as management and overseas effectiveness training.
The Director of Training has been reluctant to push a mid-career course, however,
while training is still approached on a permissive beeis.
The majority of Office and Staff had of DIVS have signified their agree-
nont with the need and utility of a mid-career course as envisioned by the 1G.
if the other Deputy eirectorates show a similar interests and if this course
shall be attended on a "plenned" basis, 1 shell-request OTR to move ahead with
their elanning.
shoold like to pause here to comment briefly on the present etete nf
manaeoment training. Criqz. now offers three separate scheduled courses in manage-
ment and seeervieions nrrangod by student grade levels, plus a new senior Rd:mi-
ner in menaeceent for selected, earlier officers of the Agency, In additions
numbers of Agency personnel, especially from the DO/S, have completed external
management training of various, types in such institutions as the Harvard Busi-
ness School, University of Chicago, American Management Association, the U.S.
Army 14anaeenent School, the 13rookinge institutions and others. e have now
reached the point where we can relate the various manneement training Meth-
ties to the varying needs of our employees, and I foresee that we shell con-
tinue to teko aopropriate advantnee of these several opportunitioe.
Nevertheless, I agree that keency doctrine and problems of commands
managements personnel adninistrations and supervision should be given due
weight in the proposed mid-career course.
0DCI Action: Approved.
IYI 121.101.12/4424v DTR to nesint PCI in this action, poecibly with uodifi-
cation Career Council action.
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totid=Oareer
1. The need. for same form of training at the middle career level is
ed by trainers and Consumers alike tilt there is little agreement on
extent or even tizint of such a course. Mid-career triining
is accepted as a part of an
throughout goverment
program of the proper preparation'ci" people to perform effectively in
their assigned functions. The Foreign Service Institute, for example, offers
a course for Foreign Service Officers at the 780 3, 4, and 5 levels which is
designed to "encourage the development of a broad and integrated pnofessional
philosophy that will enable the officer to function with a more acute aware-
ness and a deeper understanding of the essential character and role of his
profession." (It should be noted that the 12 week course includes two weeks
devoted to executive management.) While this purpose may net be completely
appropriate to the Agency, it does contain sar2 of the essential character-
istics applicable to any:program of training at mid-career.
2. Before advancing suggestions for the purpose and nature of such
training a definition of mid-career should be agreed upon. The middle point
of a mants career will, of course, vary with the individual and will be
Influenced by circumstances both favorable anti unfavora:le. An age and grade
projection of what may e considered an average career would take Ws form:
GS Grade 9
Age
' 12
13 14 15
25 30 35 11,0 50
In actual practice intervals "tetwen prmotions in the lover grades may be
shorter and lunger in the LiTer 7,77adcs. While th..s projection admittedly is
rather arbitrary, It eer_s res.n: to assue that tI. yolE man of 25
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entering the service should aspire to grade GS-15 by the time he reaches 50
of age. If he does not his chances of attaining that grads thereaft
mapiAly. We realize that 25 years of service is not
+V.
lifetime career and that GS.-15 is not the ;41 4"tt of
?
The projection May be extended through 06-16 and 4.4111s 6without reate44,17.';',
altering the relationship of age and grade. The nuMiler cesivergrade poslitani
always will be limited and since we are seeking sOmetliing baying application':
to the majority of officers we believe it more practical to use the projection:
shown above.
3. The middle point in grade falls between G8-12 and 13, in age between
35 and 40, and in length of service between 10 and 15 years. This point appears
to be most appropriate for a number of reasons. At the GS-13 level an officer
uslwilly is expected to assume major supervisory responsibilities for which he
should be thoroughly prepared. One of the deficiencies noted in the current
training effort is the inadevacy of proper preparation of employees assigned
managerial responsibilities. Grade GS-13 also is in many areas of the Agextry
a crucial point; it is a "break-through" level which distinguishes between
journeymen and senior officers. It is in effect the gateway to more senior
positions and one of the more difficult to penetrate.
4. The age bracket of 35 to 40 also is very significant. It is the stage
at which the individual becoMen'more mature, he is more aware of the full extent
of his responeibilities both at work and at home and his concern with his future
is greatly sharpened. It is no coincidence that the average age of professional
officers in grcuie GS-12 and over who leave the Agency for some other occupation
is 39.4. It is frecuently a turning point in a man's life.
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5. In terms of years of service this middle p? tie me,et Appropriate
also. The officer has served his apprenticeship and at least seven to twelve
productive years in his specialty. He probably knows 441 her
about his job but has had little opportunity to participate
other activities. The danger of atroPbY is greatest is
6. A mid-career training program desigaetVith tbaSe
should have as its purpose: (a) to prepare officers to assist* *ceder
responsibilities particularly in the field of:OOMAADA14 (b) to refresb aad
? rekindle their motivation in the interest of the government and the
gence service, and (c) to broaden their outlook of the Agency's mission'through
a better understanding of the interrelationships of its many parts.
7. We anticipate some initial difficulties in the development and
scheduling of a mid-career program but as employees' promotion and growth
rate stabilizes there should be a fairly uniform progression of officers
through this mid-career stage which will provide standard, almost routine
attendance for a regularly scheduled course. The seminar form of approsil.
mately 12 weeks is favored by most and would appear to be appropriate to the
purpose.
It is recommended that:
? The DCI alithorize and direct the establishment of a mid-career
training course for officers at the GS-12 and -13 level in order
to prepare them for broader responsibilitiesparticularly in'the
field of command, to refresh their motivation in the intelligence
service and to broaden their ',,nderstanding of the interrelationship
of Agency functions.
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!RAMON X01 REPOrer ON kpIIp
Re
?P Pc?4(tok 110, ?3-4
Reooemeseietipe The DCX authorize and direct that a senior officer program be?
established to develop more officers capable of formulating and evaluating com-
prehensive:1,y policy concerned with intelligence in the 11., 8. Government generellY
in keeping with the outline described in the IG saran".
DD 0 : I concur that the Agency will benefit from a senior officer
proFram, but I believe that es must give this naccamsandation careful
and deliberate itudy. I am not at all sure that we should try to set up a "CIA
Senior Officer Course" comparable to that oflbred at the National War College,.
for example. First of all, such an undertaking cannot help but be very expen
sive to administer and to operate, and OTR advises that it does not now have
the staff or the facilities for such a course.
The Director of Training points outs too, that ura already is making very
extensive use of the valuable serVices and time of many of our senior and top-
level CIA officials as guest speakers and panelists in exiating warms, Finelly,
we are already accomplishing a considerable amount of training of CIA senior
officers at this level in;
a, the senior officer colleges of Defense and State,
b. civilian and military graduate schools of managenent,
ce advanced studies in other subject matter areas in colleges and
universities in the United States end overseas (especially by DD// offi-
cers), and last
d. our own, existing senior officer-level courses.
I feel that we can do more in this area, and am confident that there can
be worked out a comprehensive program which will meet the general needs of
senior exeoutivee as yell as the peculiar needs of our senior professional
specialists.
pnci Ae4ens Approvedutith the modification that a senior offier program
shall be drafted and submitted for a rove rather
than establishe at s t
OTR Proposed Ac on: DTR to assist DCI through CIA Career councils noting
C/Ats extens ye and often very expensive use of other senior officer training
facilities.
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B. Senior Officer Training
14 One of the readily identifiable PrOblem arta& in the Agency today
pronounced shortage of senior level-ofticers thoroughly experienced in
all a#p4cts of the intelligence profession capable of understanding and etas'
fectively dealing ':v4'04, coakplex Agencrwide..an4 interagency prololamOs
The
Agency finds 'itself in this circumstance partly through its historical evolui.
tion in Which some components descended in Unbroken line from World War II
organizations; partly because the organizational structure has fostered the
growth of three semi-cautonamous sub-divisions; partly because a sound security
concept of compartmentation has been permitted to develop into a policy
approaching "apartheid"; and partly because the pressure of operational and
..functional demands placed on the Agency since its inception have compelled
the direction of its great energy to the rapid development of people to do
specific jobs well and defer to some later date the development of people
who can do all jobs well. There also enters here some element of the prodigal
use oftalent because it is plentiful, the substitution of numbers of people
to make up for lack of broad individual competence and the resorting to
group judgments in place of executive skill.
2. Preparing individuals to assume and effectively discharge the
responsibilities of senior management is more a problem of development, than
formalized training although the latter has a definite place in the scheme
of things. As we.pointed out in the Inspector General's report on the Career
Service Program, the absence of an organized method of career development has
seriously hampered the proper preparation of officers for key positions and
some sound long range planning must be instituted to meet this need. We
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a-
still are hopeful that such an effort will be successful in the near future.
there is an immediate need to do everiltbigg possible
erreoti**04011 oft9Ibles staff of sallitOr Oft
tbe- next Thy rem t,o come. ler We purpose ve
3. The objective of a senior officer woos* lotLy be briefly stated
in these teres: to develop more officers capable of formulating end evaluating
comprehensively policy concerned with intelligence in the U. S. Government.
This objective is sufficiently broad to encompass all aspects of the intelli-
gence profession, the internal management of Agency affairs and the inter-
relationships of the Agency' with the intelligence community and the policy
making elements of the government.
4. The level at which this program is aimed should not be lover
than 08.,15 although a case can be made to include selected individuals at
the '08-14 level. It should be regarded as the preparatory phase for officers
entikngAhe final stages of their careers with the Agency and therefore provide
a rounding out of their earlier experiences and training.
5. The greatest benefit of this program is to be derived from the
interchange of opinions ad ideas through the exploration of the entire
speCtrum of Agency and community problems. For this purpose a combination
of seminars and case studies With a minimum of orientational lecturing would
be the most productive. A mixed enrolltent of DD/P, DD/I, and DD/S officers
could profit by exposure to each other's problems. A budget officer, for
example, might make a solid contribution to a discussion of counterintelligence
operations, a case officer might speak with conviction on information storage
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and retrieval, and an analyst may offer valuable ideas on logistic'
EXecutive management should be stressed at this level but no subject,
itional or administrative, should be neglected.
4ro
6. A senior officer program to be most effective must
a period of time adequate to the full development of its Objectiv*
similAr program, though on a somewhat broader scale, conducted by the FOreign:
Service Institute rtns for nine months. We do not contemplate so extensive al:
program to meet Agency needs at the present time. AM the program evolves
the future it may be found desirable to invite attendance by senior officers
of other intelligence agencies in which event a longer course might be tUstified,
For the initial effort at least and until experience can be gained we believe
a course of about four months would be most effective.
7. In magnitude, taking into account the problems of administration
and technical methods of handling such a program, it is suggested that enroll-
ment be limited to not more than 40 officers at one time. The program should
be Conducted at least twice annually although it is believed possible to run
two courses concurrently if necessary. A reasonable goal would appear to be
the participation of 80 to 100 officers each year.*
*Note: At the present rate of promotion about 50 officers will enter the
G$-15 level each year. It is Anticipated that promotions will stabilize
at this rate for the foreseeable future. This will permit ultimately
scheduling the senior officer program semiannually with an attendance of
about 25 at each session. For the first few years, however, the effort
must be made to accommodate a large part of the present staff as well as
the newly elevated officers.
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CONFIDENTIA
8. The queStion of loca ion must also be considered. Ideally, from
the academic point of view, an atmosphere relaxed and free fromtbe tensions
of normal Agency activities would provide the best snrroundinga for undisturbed
25X1A concentration and thought. This would point to the most
priate site but practical considerations s
Separation from family for an extended period of tile, sidle tolerated by
JOT, would be strongly resented by the senior'officers. Unlike the
25X1A
services Agency facilities
do not provide for students' dependents
and it would be economically unfeasible for the Agelry to pay for
25X1A
quarters even if the local market could meet the demand. It appears therefore
that there is no alternative at present to conducting the program at head-
quarters with the attendant disadvantages of proximity at home offices and
the ever present danger of interruptions and distraction by continuing -contacts
with working colleagues and associates.
9. The success of the program can be assured only by highest level
direction and proper planning. Officers who are to participate must be released
from regular duties for the full duration of the course and required replace-
ments arranged for well in advance so that their functions can be carried on
in their absence. It is our opinion that all officers should be required to
participate upon reaching the GS-15 level but if this proves to be impractical,
at least for the present, then selection should be based on merit, accomplish-
ment and potential. Appointment should be regarded as a reward for achievement
and an acknowledgement of superior ability opening the way to the highest
levels of executve ma7laement.
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10. Other than the salaries of the pariitipan raordinary: coat
is contemplated for Ole Progrepip t
expected to provide S
of the program the a
as such can be di
from the Agency at large- or, better at
themselvea. None of the customary testing and evaluation pvictiees are called
for. It may be desirable to enlist and pay for 4100e4Xpert Outside talent to
handle such subjects as advanced management but the cost for such services
would be modest when compered with the cost of full-time instructors.
U. On a number of occasions in the past suggestions have been made
to establish an Intelligence Staff College along the lines of gimilwr bi1itar7
institutions. .Some such proposals have been reviewed in the process of this
study and much thought has been given the matter. There is mach to be said
in favor of some form of staff college for intelligence officers but it is
believed that the Agency is not yet ready for such an undertaking. A senior "
officers' program as outlined herein may well lead to the ultimate establish-
ment of a broader and higher level school but to meet the Agency's most urgent
need this program should be developed without delay.
It is recommended that:
The DCI authorize and direct that a senior officer program be
established to develop more officers capable of formulating and
evaluating comprehensively policy concernedwith intelligence in
the U. S. Go'rernment generally in keeping with the outline described
above.
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25X1A
AppnwedForRek4w02002/ -11CIYA -16iit0-01826RD01400070021-4
OP ACTION ITEM FROM IGIS REPORT ON TRAINING
Recommendation No, 25 (Page 92 of Report)
Action assigned to: Plans Staff OP Work Project No, 31-61
Recommendation: The DTR together with the Director of Personnel undertake to
monitor the present efforts of the Department of State to improve personnel
management and training in the Foreign Service for measures that may be adopted
for the Agency's benefit.
DD/S Comment: Concur. We have been doing this for some time, on a continuing
basis.
DDCI Action: Approved on the understanding that such monitoring is already
underway and will be continued.
OTR Proposed Action: This is being done on a continuing basis. DTR's coverage
is provided by R/TR, PPS, LAS, SIC, IS and I, and Office of General
Counsel. DTR is a member of the Interdepartmental Training Group.
OTR Proposed Report of Action: The Office of Training is in fact closely moni-
toring both the Department of State and USIA, on a continuing basis. An OTR
officer is now serving as Director of Training of the USIA. Close contact and
liaison with the Department of State and the Foreign Service Institute are main-
tained formally and informally through the OTR registrar, Plans and Policy Staff,
Language and Area School, Intelligence School, and School of International
Communisms. The CIA Office of General Counsel also forwards to OTR information
concerning this subject. Finally, the Director of Training is a member of the
Interdepartmental Training Group.
D.
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I 'rile JOIT has achieved solid acceptance in the Agency by
emic Performance/
they readily adapt to and
assignments. ?ace's
-
t of all is the willingness and ability of the JOT to fend
himself.
3. nature of the JOT Program
a. Recruitment
Numerous policy questions arise in this area of
administration of the JOT system. Many of these stand out in a comparison
of the JOTP with the Foreign Service Officer recruitment program in the
Department of State. By contrast, the JOTP administration has enjoyed
singular .freedom of action while the Department has been subject to
constant public and congressional examination particularly as an out-
growth of the work of the Wriston Committee.. New rules and structure
may be imposed on the JOTP to achieve specific benefits but at consider-
.
able risk of hampering the positive leadership the program has enjoyed
thus far. The Departmentrs policies and experience should, however, be
followed closely with the intention of adopting and profiling from
measures of proven benefit. '
(2) JOT recruitment does not assuredly reach all
American citizens who may possess suitable qualifications for careers in
CIA. The absence of a publicly advertised, competitive entrance test,
and the use of professional officers on recruitment tours (as now
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practi;ed in the case of ORR) would remove any doUbt that the Agency does
not :adequately protect the inherent privilege of citizens to learn of and
,
for employment with it.
(3). 'Mere is no requirement that the JOTP balance its
appointments by State or region of origin and schooling. IWhile the present
patterns of recruitment do not appear to be seriouslY out of balance in
this respect there are aspects of the Agency's policy here which will
bear observation. The first is the possible political implication at
some time in the future of disproportionately low representation of
officers from the South and to a lesser extent from the Far West. The
second concerns heavy recruitment of students from Ivy League schools
and the possible influences on loyalty to associates and judgment of
individual performance which this circumstance may be alleged to generate.
(4) The JOTP administration may be assuming excessive
responsibility in the screening and selection of junior officer candidates.
This same issue is noted below in connection with the final assessment
and assignment of JOT's to active duty. As the JOTP assumes increasing
responsibility for determining the types of individuals who are to man
the Agency it seems obvious that the current operating experience of
senior professional officers should be brought to bear in making the
decision. There are today rainy numerous consumer comments that present
JOTP selections tend to overemphasize intellectual qualities and to
underemphasize rugged and adventurous traits. A policy of panel examina-
tion of top candidates with professional line officers included on the
panels would insure JOTP sensitivity to Agency needs at this point.
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(5) There is a second possible source of independent
judgment of applicant qualifications in the use of outstanding:pane
citizens in the panel selection process. These individualsispq
the handicap of liated acquaintance with intelligence but tbsumay 1010
contribute useful insight.based on long experWoe in govzi
corporation or university administration.
b. Agency Sponsorship of JOT Military Duty
From its inception, the JOTP has sponsored military
duty for candidates who have not fulfilled this requirement and whose
services would probably be lost to the Agency unless employment were
arranged prior to military service. A noteworthy feature of the
program has been the arrangement with the Services to detail the JOT
officer back to the Agency for the last 12 - 24 months of his active
duty status. During the first eight years there were 141 cases of
military sponsorship of which 83 or 59 per cent remained on duty at
the end of the period. The program has been expensive to the Agency
in loss of time from intelligence training and in the high attrition
suffered. The JOTP has been able to recruit the majority of its
students with military training already accomplished. A recently
introduced factor in the situation is the decision to give selected
JOT's additional formal training in paramilitary subjects. A correla-
tion of the two blocks of training may prove possible and of benefit
to the Agency.
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(7) There is no Pattern ,in the scheduling Of overse,t
%
duty. The prospect of overseas assignment is a significant factor In.J0T-
recruitment and therefore a possible source of frustration when the junAer
officei finds his initial headquarters tour stretching into the third
occasionally the fourth year. The pregent.prospect?is,that this is
will grow in importance as the four-tear or longer tour of duty becomes
standard Agency practice. It is conceivable that the DD/P will have to
establish a ceiling on the number of months of headquarters duty the
Junior Officer shall serve prior to assignment overseas.
(8) Another approach to the concept of apprenticeship
is to schedule some of it overseas including formal training in language
and area. This has the appeal of realism and the drawbacks of greater
expense and difficulty in finding supervisors who are qualified and
motivated to work with junior officers and who can find the time under
operating pressures to provide effective guidance. The prospect of a
large influx of JOT's into the DD/P annually only two years hence makes
it appear desirable to experiment now with this approach.
(5) Problems in the management of JOT's with 10 or 15
years of experience as case officers lie some distance in the futl:r.
With respect tc tte.question of formal or refreher train:L:1g fc
officers, the present experimentation of the Department of State with
mid-career and %_!_or officer training is of intere. . Mar,y officers
at this stage will he moving into chief of base and deputy chief of
station assignments for which as yet there is no formal preparation.
The question of diversification of experience through rotatior is one
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which faces the senior JOT graduatesoiand non-JOT's at the present time.
There ,is insufficient evidence for generalization but An some oases the,,
ea:perience here has been discouraging. Boma former allrs now operate on
the conviction that diversification is a matter of lersocal initiative,
and accomplished by knowing the, right perm:it'
at the right time. Well qualified officers
the right
suitable
vacancies only to find that the concern of the eMploying Branch for its
own, perhaps lees well qualified individuals, has Precluded appointment.
The net result then is frustration and possible resignation for the
individual and haphazard administration of the brad personnel objectives
of the Directorate. The power of decision here lies with the Branch
Chief. The Panel system of Career management as now constituted doesn't
- really get at the problems involved. In some manner, particularly in
the ease of highly qualified and expensively trained JOT's, it will be
essential that the DD/P, and in time the DDA and LO/S, provide for a
more orderly personnel administration. The career officer must know what
to expect and how to plan the broad outlines of his career. The Depart-
merit of State is also experimenting with this problem as a result of
severe criticism by the Wriston Committee of its previous informal
practices. Recent State innovations include the development of training
and experience standards for all Foreign Service positions, the establish-
ment of an inventory system on punched cards to record individual training
status and to derive annual training requirements, the imposition of
sanctions to enforce training policy including a requirement that language
competence be a prerequisite to advancement, and, finally, the creation
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of aOirter--Derelopsent and Counselling Staff of eXierienced Foreign
Service Officers to advise =personnel policy and monitor the career
Agitnning.of individual officers. These measures are not yet proved
'InStrUments of a forward looking personnel sanagement policy: nor are
they necessariky suited to the needs of CIA. giey demerit close
observation and they are suggestive of the directions in which the
Agency may need to move if it experiences severe attrition among its
most highly qualified and carefully trained personnel.
It is recommended that:
(a) The DCI establish as Agency policy that all junior
professional officers enter Agency employ through the JOTP
? (b) The DTR establish a JOT Selection Panel composed of
line officer representation from the three Deputy Directorates
? Vogether with appropriate representation from the Office of
Personnel and Training. The Chief, JOTP, should chair the panel.
(c) The DTR should give consideration to the feasibility of
the use of outstanding public citizens in the panel selection
process recommended above.
-(d) The DTR arrange for the participation on a rotational
basis of line officer representation from the three Deputy
Directorates in JOTP placement panels.
(e) The DTR together with the Director of Personnel take
steps to eliminate prejudices that have arisen which tend to
assign second class status to DD/S and DD/I careers.
(f) .The DD/P establish minimum standards of training and
experience for case officer apprenticeship including general
preparatory, baAic skills, language and advanced operational
training, and that he determine the feasibility by experiment
of some form of overseas familiarization as a part of the
apprentice period.
(g) The DTR together with the Director of Personnel undertake
to monitor the present efforts of the Dep rt of State to
improve personnel management and training in the Foreign Service
for measures that may be adopted for the Agency'L benefit.
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