COMMENTS ON THE INSPECTOR GENERAL'S SURVEY OF THE CIA CAREER SERVICE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80-01826R001100050022-5
• Release Decision: RIFPUB
• Original Classification: S
• Document Page Count: 23
• Document Creation Date: December 12, 2016
• Document Release Date: December 7, 1999
• Sequence Number: 22
• Content Type: SUMMARY

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COMMENTS ON THE INSPECTOR GENERAL'S SURVEY
OF THE CIA CAREER SERVICE
GENERAL
The Inspector General's basic premise is that CIA must move for-
ward in building its Career Service and that the career development of in-
telligence officers is a central problem in this field. With this there
can be no dispute.
The Career Service plans devised during the early 1950's and im-
plemented during the remainder of that decade have been reasonably well
tested. There will be broad agreement as to what to retain and what to
discard. A. number of basic, technical improvements have been and are being
made in the personnel practices which support Career Service administration:
the Flexible T/O, Separation Procedures, Average Grade Controls and Manpower
Controls. There has been steady improvement in the general level of person-
nel management by the various Career Services. There is one final and
extremely important job to be done: the identification and separation of
surplus personnel. As soon as this has been completed we should be prepared
to introduce a more positive Career Service Program.
One lesson that we have learned over the past few years is that in
personnel administration, and particularly in the field of career development,
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true progress comes slowly and is the result of a lot of careful and-thought-
ful work. Various companies and even certain departments in Government use
career development as a central theme in advertising for recruits. The im-
pression is sometimes given that the road to success and satisfaction is a
broad avenue that you can speed down, guided along the way by an alert person-
nel office. It is our hope that CIA will avoid that sort of appeal and that
in evaluating our own progress we will not be deluded by such claims on the
part of others.
A discussion of the Inspector General's recommendations concerning
the structure and purpose of our future Career Service Program depends on
some measure of agreement concerning the Agency's needs in this regard. The
survey drawn up by the Inspector ranges over this broad subject and provides
the reader with many insights and many opinions but it fails to present a
reasonably balanced and accurate description of those problem areas that
need reform. This is a result of the fact that the Inspector has dealt with
the problem almost entirely at Agency level. Perhaps then a systematic sur-
vey of the subject can suggest a more reliable answer to the key question
that faces the Agency at this time, namely, how far should we go in attempting
reform of Career Service at this time? Such a survey in brief form is given
under the separate headings that follow.
A. PRODUCING LEADERSHIP
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First, with regard to filling senior positions the Agency is in
a favored position. From the very beginning it has been free to move
persons at senior and higher middle-grade levels from position to position,
free from the restrictions imposed on other Federal departments and agencies
by law and tradition. The group of men who have been selected into Agency
supergrades represent, in the aggregate, a wide breadth of experience and
very high individual caliber. It is notable that there are very few among
them that could not easily be replaced from within the group or from the
GS-15's now on hand. To say all this is not to suggest that career develop-
ment work is not necessary in preparing men and women for senior positions
or that the situation we find ourselves in is ideal. For example, a survey
undertaken by the Deputy Director (Intelligence) shows that a number of his
GS-16's and 17's have had remarkably narrow experience and it is questionable
whether the men and women behind them on the ladder of ascent will have
broader experience if our career development program is not strengthened.
In the Clandestine Services, on the other hand, the problem that we face
today to some degree and may expect in increased measure in the future is
just the opposite: an embarrassment of riches. The attractiveness of the
Service, the high caliber of many employees at all professional levels, the
opportunities for broad experience, and the early introduction of the indi-
vidual to important responsibilities result in precocious growth. The DDP
will be able to supply more generalist material than the Agency can use.
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The Deputy Director (Support) is pressing forward a survey of his sources
of supply for senior talent. It is my impression that rotation of DDS person-
nel to positions overseas and among the headquarters elements and the con-
tinuation of an aggressive internal and external training program will supply
most of the talent needed. Some lateral entry and some use of military per-
sonnel will handle the rest.
Our general conclusion regarding the need for an increased effort
in the field of career development having to do with the provision of leader-
ship is that some improvement is required in this area but that the Agency is
by no means in bad shape.
B. CREATING UNITY
The inspector sees the rotation of middle and higher grade intelli-
gence officers as a way of solving the problem of separateness in CIA. There
can be no doubt but that individuals who have had successful tours of duty
first in one office and then in another are able to work out systems of
collaboration between these two offices and can thereby contribute to organi-
zational teamwork.
Given the size of the intelligence effort in the United States, the
complex relationship that exists between the Clandestine Services and the
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various producers of intelligence, the operation of the need-to-know prin-
ciple, the formal procedures that must necessarily be followed in the
conduct of day-to-day business, and the undercurrent of competitiveness
that influences the relationship between the Clandestine Services and all
of its customers, including those in CIA, it can be seen that the problem
of creating unity is a very broad one and one to which personnel operations
can only make a limited contribution.
By painting this dark picture I do not wish to imply that there has
been no progress. But there remains a long, long way to go. The relaxed,
sophisticated, and informal channels of communication that do exist here and
there between collector and producer and between other participants in cooper-
ative efforts are the model. It is notable that they are more the product
of mutual respect and intelligent understanding than of any system of rotation.
Indeed they form a background for the successful development of personnel
rotation plans.
It is our conclusion, therefore, that the goal of unity, of effi-
cient communication and of good teamwork is a proper goal for management.
The Agency's career development program can and should be used in working
toward this goal but it would be a grave mistake to try to move forward on
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this front alone or to try to move too fast.
C. THE DDI ANALYST
Far more serious is the need for sound career development doctrine
in the administration of certain specialized categories of intelligence
analysts and technicians. Not only are we faced with a most difficult prob-
lem in this area but the solutions thus far proposed are not adequate.
"Things have gone just fine so far. I have been treated well. I
like intelligence and find the materials that I work with especially inter-
esting. I think I am paid well enough. But I worry about the future. I
worry about going stale. Some of the men I work with are already........"
How often these words are spoken nowadays. One never heard them in OSS. One
rarely heard them in ORE. The war, the cold war, expansion, increasing re-
quirements, rapid promotion and the distractions and excitement attendant on
continuous reorganization made "going stale" a remote danger. Today both
organizationally and individually fear of going stale lies just below the
surface in the DDI. Organizationally the DDI has settled down. Rapid growth
adjustment and reorganization are over. To the typical individual the
challenge of a new job in a new field is over. The advance to a respectable
professional level has been successfully completed. It is known that
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promotions will come slowly. Professionally the need is great for relief
from a total preoccupation with paper, reading and writing reports, pre-
paring briefings, providing "background" materials.
Our general conclusion regarding the DDI analyst is that he rep-
resents one of the Agency's most serious problems in the field of personnel
management. A development effort aimed at introducing a carefully measured
element of variety and challenge into the analyst's career is needed.
D. ACADEMIC PROFESSIONALISM
The Inspector alludes to the problem of academic professionalism,
which of course centers in the DDI although there are instances of it else-
where. One of the characteristics of the professional is that he may feel
torn between his loyalty to his profession and his more recently acquired
interest in intelligence. He may in fact feel that his true interests lie
in the direction of advancement in his profession rather than in intelligence.
He is apt from time to time to be lured by employment in industry, in teaching
positions, or in academic research. At the very minimum he has a sense of
separate status and not infrequently looks down a bit at the mere intelligence
officer. Bona fide physical scientists and economists are given to feelings
of superiority nowadays. This situation is not uncommon in government and
industry. It represents one of the minor challenges to management.
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It would be our feeling that the type of program that we would
develop for the purpose of keeping the experienced analyst from going stale
could also be used to increase the knowledge of and appreciation for in-
telligence operations on the part of the professional.
E. THE CLANDESTINE SERVICES
The Clandestine Services have at their disposal a variety of assign-
ments at all professional levels. This makes it possible to conduct career
development operations among the most talented with great ease and effective-
ness. The result is that the area divisions and staffs produce annually a
formidable group of new GS-13, 14 and 15 operations officers some of whom
have the capacity to become generalists. In an article published two years
ago by Studies in Intelligence I reviewed the process of growth that takes
a man from specialization to generalism. There is an obvious need that this
growth be stimulated and supported, that assignments of individuals outside
of the Clandestine Services be arranged, and that full advantage be taken of
the opportunities for advanced study. These refinements can readily be added
to the present system.
The real challenge to Career Service is to be found among that
group of specialists who are not intrinsically outstanding but upon whose
ability to perform at a very high level of competence depends the efficient
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operation of the Service. It is the group that with every passing year be-
comes less mobile and less adaptable. Frequently members of this group are
passed over in making assignments because, although each one earned his
present grade by honest and often very productive work, times have changed
and needs have changed.
That there should be such a group is inevitable. There are pro-
fessional casualties in every walk of life. It is to be expected that in a
field as demanding of high levels of performance and behavior as the field
of clandestine operations there will be a fairly high casualty rate. How-
ever, it will not be possible to develop a long-range, attractive and
effective career service program for the Clandestine Services if the casualty
rate is allowed to remain at its present level. Therefore, in addition to
the steps that are planned to identify and release those officers whose use-
fulness is at an end, there must be a program designed to prevent Clandestine
Services officers from slipping once they have lost the momentum that carries
a man through his original training, his apprenticeship assignments and to
a respectable level as an area operations officer. Return from overseas to
an overcrowded branch, assignment to a staff or to a special project can be
the occasion for the beginning of the downward slope. Loss of a sponsor and
dependence on the Clandestine Services employment market can have its real
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dangers. To understand the nature of these risks, a word must be said about
the structure and the business habits of the Clandestine Services.
F. STRUCTURE OF CLANDESTINE SERVICES PERSONNEL OPERATION
Over the years the Clandestine Services have developed their own
unique ways of doing business. The distribution of authority between head-
quarters and field, between branch and division, and between division and
organization is flexible and can be adjusted to favor the man exercising
operational responsibility in any given instance. The authority to accept
or reject personnel rests with the operating units at these various levels
and the authority to promote is reserved to the Career Service. The DDP, as
Head of the Career Service, can invade the former area by directing the
assignment of an individual, but this is rarely done. The result of this
division of authority is that each unit up and down the various echelons
of command acts for all intents and purposes as an independent concern doing
its own hiring and firing. The Career Service Secretariat plays the part
of the U. S. Employment Service. Indeed, the motivation of placement officers
centers around their ability to help people in what often appears to be an
unequal contest with management. Thousands of hours of working time are spent
by the Career Service people who must shop individuals and by administrative
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personnel who must carefully scrutinize files in order to protect their
organizations from the assignment of misfits.
Three things make this effort on the part of the Career Service
mechanism frustrating and wasteful. First, a series of informal networks
made up of responsible professional officers play extensively at the game
of trading people. This is done at lunch, by telephone call, as an after-
thought in the conduct of other business. The number of candidates con-
sidered for an opening depends on the judgment and tactics of the man
controlling the position. As a result, a very large percentage of good
positions are never notified to the Career Service. Second, there are a
good number of officers who at any one time should be placed or moved. The
Career Service Secretariat naturally tries to make such placements into the
positions that are known to be open with the result that the Career Service
has earned the reputation of being a placement problem-solver and not a
reliable supplier. Then, finally, it is almost impossible for the personnel
placement officers to be sensitive to the different priorities that must
dictate the movement of people from one unit to another in a well-ordered
operation. In small organizations, command can do this; hence, the success
of certain operating units and smaller career services. In theory command is
represented in the Clandestine Services Career Service by the panels and
panel chairmen. In practice this is so only to a limited degree. The most
conspicuous result is that the Career Service so often fails to pursue
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aggressively the only course that will satisfy an important requirement,
namely, to go after candidates on the basis of their qualifications rather
than their availability. Further, the Career Service cannot determine with
confidence that a particular position can be adequately filled by their
candidate, that is, by an individual who needs the experience. This renders
most difficult the orderly career development of individuals and the pre-
vention of the high casualty rate referred to above.
our general conclusion with regard to the Clandestine Services is
that an expanded career development program is necessary in order to effect
proper balance between the logically self-centered objectives of operating
units and overriding operational and career development requirements of the
Clandestine Services.
G. THE DDS
The several services that comprise the DDS have developed satis-
factory internal career service practices and the key career development
problem in this area is the classical one of executive leadership. As
pointed out above, steps are being taken to solve this problem. In saying
this one must be careful to emphasize that this problem is inherently a
most difficult one. The diversity of function, the dependence that must be
placed on specialists at the working level, and the difference in the type
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of work and extent of responsibility at the several higher echelons make
it quite an art to groom a man for promotion into the senior grades. For-
tunately for us, the problem that confronts the DDS is exactly the problem
that confronts business and wide areas of government. CIA does not need to
extemporize in this area. Sound practice is being developed to meet the
problem and excellent management training is being offered in various
schools.
H. THE EFFECTS OF HIRING AND ASSIGNMENT PRACTICES ON CAREER SERVICE
AND THE AGENCY'S CAREER DEVELOPMENT PROGRAM
The appeal of this Agency to many young men just graduating from
college is the appeal of an assignment in covert operations. This of course
is a real asset in JOT recruiting. It does not even need to be mentioned.
Bright young men understand that there are things that cannot be spelled
out. Unhappily the somewhat less talented college graduate whom we hire
for OCR, for Registry, and for other sub-professional jobs is frequently
moved by the same appeal. This establishes a basic misunderstanding which
has dogged the Agency's Career Service system since its inception and which
explains a great deal of the dissatisfaction evidenced by such employees.
It is quite possible that if such a recruit knew what his real chances were
for a satisfactory operational career he would turn elsewhere. But this he
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cannot know. The recruiter is free to tell him about his initial assignment
but certainly cannot speculate about chances thereafter. The employing unit
attempts to hold the interest of the employee in the work being done, leaving
to "Career Service" the problem of satisfying the employee's long-range
interests.
The effect of these practices is to charge against the Career
Service account all of the unfulfilled hopes of the men who do not reach the
area divisions and to defer until a later date the troubles of those who do
but who are not basically equipped to succeed in covert work. There are a
few who make the grade; many do not and these are among the group that the
DDP hopes to separate involuntarily.
It is not suggested that the solution to the problem is an easy
one. It is an old and respected practice for ambitious young men to accept
clerical or menial work in order to enter the field or company of their
choice. Line supervisors can hardly be blamed for accepting them. They are
excellent producers during their first few years. The real trouble comes
later. The almost-professional standing of positions open to such people in
our big mail and file operations, the use of junior professional grades
(9 and 11) for such positions combined with the fact that it is possible to
learn the language of intelligence, indeed of operations, without being
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exposed to the substance of the matter result in the Agency's being supplied
annually with quite a number of ill-equipped medium-graded officers.
Our general conclusion with regard to this group is that sound
personnel management (definition of long range sub-professional personnel re-
quirements, selective recruitment, counseling of the employees) and not
career development is the required cure. In the past, the college graduate
file clerk has been the joker in the career service pack and his plight has
been held up as a reproach to Agency management.
I. DISCUSSION OF RECOMMENDATIONS
The Inspector's recommendations center around two basic proposals:
first, that a committee of four officials deriving authority and support from
the Director of Central Intelligence and the operating deputies be assigned
the task of developing and implementing a career development program, and
second, that the Career Service structure of the Agency be rearranged more
along occupational lines and that there be but one Career Service for career
intelligence officers (as contrasted with technicians and with professionals
whose main interest is in their professions not in intelligence). The first
proposal is sound and with some modifications should be adopted. The second
proposal is unsound.
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1. The Career Development Board
a. Structure
The Board should be composed of the Director of Personnel
as chairman and three senior officers appointed by the Deputies to serve as
career development officers, in addition to their other duties. The Board
would deal with matters of policy and with individual cases pertaining to
senior personnel. In addition, each Deputy would be asked to appoint a full-
time, working level career development officer. The Director of Personnel
or his designee would regularly convene these officers for the purpose of
handling career development matters pertaining to medium grade personnel.
b. Authority
The control of personnel is of such critical importance to
an officer charged with operational responsibilities that the authority to
overrule that officer in essential personnel matters can only reside at the
next higher level of command. This may not be true in other agencies or
departments and it may not be true in certain business concerns. In this
Agency, however, where so much depends on the qualifications of the individual
to do a job it is a central feature of management.
At the Deputies' level the career development officer will
derive his authority from the Deputy. If his decisions are contested by the
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office, staff or division chief they must go to the Deputy for resolution.
Similarly, the D/Pers in career development matters must be free to refer
cases to the DCI for decision.
It must be emphasized that our need is not for an increase
in authority but an increase in its effective use. Failure in the past has
not been a reluctance on the part of higher command authority to make decisions
but a failure to put the cases requiring decision forward. The recommendations
having to do with the functions of the career development officers are there-
fore the key to our problem.
c. Functions
The career development officers acting individually will be
expected to develop and implement career development programs for each of the
three general areas of the Agency and acting together under the chairmanship
of the D/Pers they will be expected to develop Agency policy and make such
assignments from one area to another as may be needed.
By far their immediate and most demanding function is the
former, for upon this the latter absolutely depends. The Agency system of
career development can only be built on successful and operating career de-
velopment programs within the several career services.
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The career development officers will have to spend a large
part of their time conducting evaluative reviews of personnel files and
interviewing people. They will establish and keep current listings of
personnel who show promise, making full use of the facilities and acquired
knowledge of the Career Service placement officers. They will be free to
attend board and panel meetings. They will consult with operating officials
concerning the characteristics of job openings in their areas of responsi-
bility. They will monitor the assignments of professional personnel and will
arrange for such changes in proposed assignments as may be called for to
carry forward the career development program.
The DDI career development officer should be responsible for
the development of programs to be financed by and conducted by the DDI and
designed to provide the stimulation and variety of experience needed by
analysts in that area. A careful exploration should be made of the possi-
bility of arranging rotational assignments to departments and agencies with
overseas responsibilities. Foreign study and travel should be encouraged.
Contact with U. S. experts in the fields of competence represented in the DDI
including rotational tours at academic institutions should be encouraged. A
careful record of the extent of such undertakings and appropriate publicity
within the DDI will be helpful.
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The DDI and DDP officers assisted and guided by the D/Pers
will arrange for a schedule of exchange rotational tours. These schedules
will be reviewed and approved semi-annually by DDP and DDI and the persons
listed will be moved during the subsequent six months. The Board will
review the files of former JOT`s and of other promising persons annually
between the fifth and fifteenth anniversary of their entrance on duty and
the D/Pers shall report its findings and recommendations pertaining to this
group to the Career Council.
The DDP career development officer will have as his especial
responsibility the development of procedures and methods which will result in
the purposeful and successful career development of the main body of oper-
ations officers. He should center most of this activity in the operating
divisions because they must of necessity be responsible for the maintenance,
development, and expansion of language and area knowledge and of operational
skills adapted to the requirements of given areas. With the help of the
Office of Personnel, he will need to develop sound records pertaining to the
qualifications of personnel and to forecast future needs. Using these
figures, he will be in a position to justify and require the systematic ad-
vanced training of personnel and to open up opportunities to those officers
who require new avenues for growth and development.
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The DDS officer's special responsibilities will center
around executive training. We have already developed this point.
2. The Career Service
The development of a single service for intelligence officers as
proposed by the IG would remove from the control of the DDI and DDP the hard
core of their staffs. In effect it would place the control of these offi-
cers at the DCI level because the Deputies could not effectively adjudicate
cases. At this level control would be too remote and too separate from
operational requirements to be effective.
A more serious difficulty arises from the nature of the single
service. It would be the service to which "true careerists" would be
assigned. Thus, selection for this service would involve an assessment of
motivation, and here we are on thin ice. There have been in this Agency a
number of informal, self-appointed groups that have regarded themselves as
highly motivated and have looked with suspicion upon the motivation of others.
In a more formal sense, an effort was made in setting up the original Career
Staff to distinguish between the motivated and the unmotivated and this effort,
which found its expression in an endless number of hours of futile debate on
the part of the Selection Panels, has perhaps revealed in their purest form
the basic immaturities that center around this type of evaluation. Materials
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brought forward to the Selection Board have not infrequently had the ring
of fraternity debates about the qualifications of pledges.
All this is not to say that there is not a very great difference
between the motivated intelligence officer on the one hand and the pro-
fessional who is merely selling his professional services to the Agency on
the other or between the motivated intelligence officer and the man who is
more interested in emoluments and benefits than he is in getting the job
done. These distinctions confront us every day but they cannot be insti-
tutionalized.
3.
Occupational Services
The Inspector's proposal in this regard would again remove Career
Service a step further away from the hierarchy of command and would deprive
career management of the convenience that that decision-making mechanism
now represents.
Furthermore, some of the occupational services would be unwieldy
in the extreme. From the employee's point of view the restrictive boundaries
of the service instead of running vertically would run horizontally. Many
occupations have but a narrow range of grades and people locked into them
might well feel that the Agency had gone out of its way to develop or extend
its "class" structure.
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Finally, it is a point of pride to many people not only to be
assigned to an office but to belong to its "Career Service." They see in
the Service, however remote, an avenue of advance. Clerical and other
junior employees learn the work of the Service and that knowledge is often
of more importance to them than knowledge of their basic skill.
4. Proposed Structural and Procedural Changes
a. The CIA Career Council
The Career Council has proved to be an effective instrument
for developing Agency personnel policy. The formulation of personnel policies
often involves the broadest possible coordination since the policies must be
acceptable in all the situations in which they may be used to define and
control the Agency's relationships with its personnel. The Council procedures
have given us a systematic means for assessing proposals against the criteria,
values, and requirements of the main area of CIA. These are not matters to
be referred for resolution to specialists, no matter how talented. It is
proposed that the Council be redesignated the Agency Personnel Board in recog-
nition of the full scope of the policy proposals with which this body deals.
b. Supergrade Board and the CIA Selection Board
It is proposed that both of these Boards be retained. How-
ever, procedures for entrance into the Career Staff should be greatly
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simplified along the lines proposed by the Inspector General.
c. Career Preference Outline
The Career Preference Outline should be discontinued and
career development counseling done on an individual basis by the newly
appointed career development officers proposed above.
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