REPORT ON AGENCY DISPERSION PROBLEMS AND INEFFICIENCIES IN THE METROPOLITAN WASHINGTON AREA (MWA)

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP86-01019R000200130008-2
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 10
• Document Creation Date: November 16, 2016
• Document Release Date: April 28, 2000
• Sequence Number: 8
• Content Type: REPORT

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Report on Agency Dispersion
Problems and Inefficiencies in the
Metropolitan Washington Area (MWA)
1. SCOPE
This report is concerned with the Government-
owned and rented buildings identified in the October 1973
Computer Run on Agency Metropolitan Space (CRAMS) as being
outside of the Headquarters Building complex and utilized
for Agency activities. Exclusions from this report are as
follows:
a. Locations which, for reasons of sensitivity,
cover, and security, are excluded from the CRAMS
system of space management.
b. NPIC,
These locations are not included since separate dispersed
locations will continue to be required for certain sensitive
functions, distinctive NPIC activities, and specialized
depot-type operations.
2. BACKGROUND
a. Throughout its lifespan, the Agency has been coping
in one way or another with the dispersion of its Headquarters
elements and personnel resources. The related problems and
inefficiencies were recognized as early as 1947 when the
Agency was housed in ten locations and a single-occupancy
building was sought from the Commissioner of the Public
Buildings Service. Records indicate that former DCI's Vanden-
berg, Hillenkoeter, Smith, and Dulles as well as their
deputies and staffs all devoted considerable attention to
this situation and to possible solutions for consolidation
in one location.
b. Despite those efforts, separate Agency locations had
proliferated to a total of = by 1953. Ten years later after
occupancy of the Headquarters building was completed, Agency
activities continued to be dispersed in other
separate locations. 25X1A
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c. At present, there are dispersed separate
locations identified and managed under the CRAMS system.
As noted, fifteen of these are included in this latest review
and are discussed in this report.
3. FACTS BEARING ON THE PROBLEMS AND INEFFICIENCIES
a. The outlying locations are within a
feet. More than half of the dispersed employees 25X9
are in the Rosslyn area. The remainder are distributed
primarily in other Arlington County, Fairfax County, and
D.C. locations. A summary of the locations, space, and
personnel is provided in Attachment 1.
b. The _ dispersed employees represent 21 separate 25X9
Agency components and 3 non-Agency components providing
ancillary services. The Management and Services Directorate
experiences the greatest dispersal with nine components and
employees in outlying locations. Dispersal of
the Science and Technology Directorate follows next with five 25X1A
components and = employees in ~ locations other than the
Headquarters building. Opera ions Directorate dispersal
amounts to four components, " employees, and 25X9
loc s. The Intelligence Directorate has two components 25X1A
and employees in outlying locations. The DCI
ex eriences the lowest dispersal with one component and
employees at one location other than the Headquarters
wilding. A summary of dispersal by Directorate, component,
and location is provided in Attachment 2. Details of
occupancy data for each of the dispersed locations
are contained in Attachment 3. 25X1A
4. DISCUSSION
a. The physical dispersion of a centrally directed
Headquarters organizational structure is a multiple burden
in terms of problems and inefficiencies. To improve
efficiency in the face of dispersal, Agency management has
adopted a series of systems and resources for providing
dispersed space and maintenance, security control,
communications, transport, and other support services. These
services are susceptible, however, to their own unique
problems and inefficiencies. As a result, their continuation
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over a period of time requires constant-management attention
to ensure that the services are providing effective and
economical solutions to the problems which brought about their
original adoption. Some of the services discussed in the
following paragraphs are examples of management achievement
despite dispersed conditions, while others will obviously
require additional management effort.
b. Resource requirements directly attributable to
dispersal at the fifteen locations amount to $6.7 million
annually and 112 man-years. In addition, time lost in
intra-Agency travel among the dispersed and Headquarters
location amounts to over $900,000 annually and 51 man-years.
The following elements are involved:
Funds
Man-Years
Standard Level User Ch.rges (SLUC)
$4,322,382
- Guard and Receptionist Service
1,347,111
94.0
Communications SystTms
640,289
Shuttle Bus Servic~
99,468
6.9
Motor Pool Service
93,111
5.4
"U-Drive" Agency Vehicle Servicel
3,215
Reimbursable Use of POV's and Taxisl
121,563
Courier Service
57,475
5.3
Supply Deliveries
13,097
.8
Resource Requirements
$6,697,711
112.4
1Time Lost in Dispersed-Location
Travel
930,000
51.4
$7,627,711
163.8
These totals represent an absorption of A ency resources
attributable to dispersion at a ratio of 2,600 annually and
1/20 man-year for each employee assigned at a dispersed
location.
c. The following factors were reviewed with regard to
dispersal resource requirements and their commitment:
(1). SLUC
Beginning 1 July 1974, the Agency will be required
to reimburse GSA at a standard-charge rate established
for each dispersed location. These charges will include
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leasing costs, GSA maintenance and overhead, and
amortization contributions toward eventual replacement
of leased property with Government-owned buildings.
The charge for each dispersed location is shown in
a new funding requirement for this Agency. It does not
reflect an addition to the total cost: of Government,
but a transfer of funds resources responsibility to
this Agency, in lieu of GSA for real property used by
this Agency. Previously, GSA assumed the cost of
commercially leased property as soon as such cost could
be programmed in the GSA budget, usually not more than
two years after the lease was consummated. The Agency
has sought exemption from SLUC for the Headquarters
and NPIC buildings. These locations are outside the
scope of this review, however, and the eventual outcome
of the exemption request will have no effect on the
charges cited in this report.
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(5). Motor Pool Service
The chauffeured Motor Pool Service does not transport
a sufficient number of passengers to be economically
efficient. The cost of this service attributable to
dispersed-locations totals $93,000 annually with only
4,000 passengers transported during the same period.*
*Historical references state that over 53,000 passengers were
transported annually by the Motor Pool prior to construction
of the Headquarters building.
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As a result, costs average $1.44 per mile and almost
$23 per passenger transported on the average trip of
16 miles (Attachment 8). This compares unfavorably
with the Shuttle Bus Service which transports 109,000
dis ersed-location passengers annually at a total cost
of $99,000 or .91 cents average cost: per passenger.
Another problem bears heavily on the overall
effectiveness of the Motor Pool Service in that
78 percent of the passengers are transported between
locations also served by the Agency Shuttle Bus
Service.
This service is not used extensively for dispersed-
location travel. The service remains efficient,
however, in terms of average cost per mile (.11 cents),
and the average 31-mile round trip ($3.41). These
favorable cost factors exist primarily because
chauffeur resources are not required. Total cost of
this service attributable to dispersed locations is
$3,200 annually. The service is being utilized at the
rate of 940 trips per year in dispersed-location travel
(Attachment 9). The number of passengers is estimated
to be only fractionally more than one per trip.
(6). U-Drive Agency Vehicle Service
(7). Reimbursable Use of Privately Owned Vehicles
and Taxis
Aside from the Shuttle Bus Service, the use of
POV's has been the most popular form of dispersed-
location travel. A continuing gasoline shortage and
price rise may curtail the attraction to this mode of
travel in the future. Unfortunately, performance data
is not accumulated centrally on this mode of travel
and it was evaluated on the base of a Logistics
sampling of reimbursements (Attachment 10). Maximum
costs per mile, however, are firmly established by
regulation at .12 cents. Provided that POV mileage
reimbursement will be stringently controlled to
necessary official purposes, and will not be normally
used between locations served by the Shuttle Bus
System, this represents an economical as well as a
convenient and flexible mode of dispersed-location
.travel. It is estimated that POV's are being used for
dispersed-location travel at the rate of 62,500 trips
and 1. million miles per year, with .reimbursement
totalling $120,000. A record of passengers is not
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maintained, but they are estimated to be only
fractionally more than one per trip. The reimbursement
sampling indicated that taxis are utilized infrequently,
and that trips total about 600 annually at a cost of
$1,500.
(8). Courier Service
Couriers are employed by several Agency components
as well as the Office of Logistics to fulfill world-
wide, domestic, and interagency needs for their services.
Courier service requirements attributable to Headquarters
dispersion are estimated to comprise 5.3 man-years, and
$57,000 in funds for salaries and vehicle operating
expenses (Attachment 11).
(9). Supply Deliveries
Supplies delivered to or picked up from dispersed-
locations consist of the full range of administrative
items and equipment necessary for the efficient
functioning of Agency offices. Other than classified
trash, the majority of the material. transported is
unclassified, and consideration is being given to
obtaining this service under commercial contract.
Resources required for deliveries to dispersed-locations
amount to .8 man-years and $13,000 annually, of which
$8,700 is for truck driver wages and the remainder for
vehicle costs (Attachment 12).
(10). Loss of Time
Resources absorbed through time lost by employees
engaged in travel between the dispersed Headquarters
locations is estimated to total $930,000 and 51 man-
years (Attachment 13). Funds resources absorbed
through this loss amount to almost three times the
$317,000 total funds required to provide the various
forms of interlocation travel (Attachments 7, 8, 9,
and 10). The greatest time loss, $604,000 and 35 man-
years results from shuttle bus travel since it is used
predominantly.
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(11). Employee Parking Cost Problem
The fact that some employees at dispersed
locations must pay for parking their POV's has been
a matter of detailed study, both recently and during
the past several years. This is of direct interest
to the employees affected, and of management interest
from the standpoint that it is an inequity and has a
bearing on employee morale. The employee parking
cost problem, however, does not represent a dispersion
inefficiency in terms of requiring a continuing non-
productive commitment of Agency resources. Further
analysis of the previous study results was, therefore,
not conducted as part of this review.
(12). Office Moves
The relocation of offices, including reconfiguration
and remodeling of space and moving partitions and
office equipment is not considered directly attributable
to dispersion. Such repositioning effort is carried
out on a continuing basis in all locations, including
the Headquarters building, and results primarily from
management decisions concerning functional changes and
realignment.
(13). Motor Vehicle Maintenance Facility
The resource requirements, problems, and inefficie 'es
involved in driving vehicles to the dispersed
Garage location for maintenance were not included in
this review. The new garage being constructed at the
Headquarters compound is scheduled for completion in
April 1974. Occupancy of the new garage will eliminate
the problems and inefficiencies which stem from the
present dispersal of this facility.
(14). Energy Loss Due to Dispersion
The services described in subparagraphs 4c(4)
through (9) above consume critical energy (fuel)
resources. It is estimated that the following amounts
are attributable to dispersion:
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Service
Fuel Gallons
Per Year
Cost*
Attachment
Shuttle Bus
21,000
$ 4,750
7
Motor Pool
5,300
1,200
8
U-Drive
2,400
550
9
Use of POV's
83,300
37,500
10
Courier
3,000
700
11
Supply Deliveries
3,350
750
12
118,350
$45,450
*Costs are escalating rapidly. These are estimated on the
basis of 1 December 1973 prices as follows:
.2260 cents per gallon for Agency vehicle fuel.
.45 cents average per gallon for POV fuel.
S. CONCLUSIONS
a. Elimination of one or more of the - dispersed
locations will result in a substantial reduction of resource
requirements. Such reduction will be primarily in funds
required to reimburse GSA for Agency-dispersed space costs
and the security guard service (Attachments 4 and 5).
b. Stringent controls of reimbursed POV travel, accom-
panied by measurement, data should be established and
reviewed periodically by management to assure that this mode
of travel to dispersed locations and other points is
necessary and conducted efficiently, e.g., pooled.
c. The efficiency of chauffeured motor pool service
to dispersed locations and other points should be either
improved in terms of cost per passenger and mile, or the
service eliminated entirely in favor of Shuttle Bus Service,
Agency U-Drive Service, or reimbursed POV travel.
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6. RECOMMENDATIONS
That management objectives aimed toward eliminating
dispersed locations and achieving related efficiency
improvements be established and pursued in the future by
each of the Directorates involved. Further, that a study
group or task force, to include as members representatives
from each of the Directorates so involved, be established
to ensure coordination and complete uniformity of efforts
to achieve the objectives.
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