HISTORICAL STATEMENT FOR THE PERSONNEL OFFICE
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CIA-RDP84-00022R000400030032-3
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Document Creation Date:
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STATEMENT
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HISTCRICAL STATEMENT FOR THE PERSONNEL OFFICE
Major Events in the Evaluation of the Personnel Office
With the establishment of the Central Intelligence Agency in July, 1947,
the overall size of the former Central Intelligence Group was considerably
increased and the Agency has grown since that time. One of the primary per-
sonnel problems during this period has been that of obtaining qualified
personnel to staff the ever increasing programs. In an effort to become more
effective in handling'personnel matters of a constantly growing and maturing
agency, changes have been made in the functions, organizational structure
and size of the various segments of the office. .
Initial Personnel organization Was Decentralized
Initially, there was a central personnel unit for servicing all units
of the Agency except the Office of Special Operations which had a self-
sustaining administrative staff. In 191.9 responsibility for the administrative
activities of OSO was placed in the central administrative offices, and shortly
thereafter a fundamental reorganization took place in the personnel unit. The
central unit was split into two Personnel Divisions--one located in the Admin-
istrative Support Staff, established for providing administrative service to
overt offices and the other'in the Special Support Staff, which serviced the
covert offices. At the same time, a Personnel Staff was established to provide
policy guidance to the Executive of the Agency on personnel matters.
Establishment of Personnel Office in 1950 Along Functional Lines
Later,, in October 1950, the organization of the various administrative
offices was again altered in an effort to improve service to operating units.
On this occasion, the separate Personnel Divisions and the Personnel Staff
were united under the leadership of a Personnel Director and reorganized on
the following, functional basis: Personnel Division (Overt) was established
to provide placement, personnel relations, and transactions and records ser-
vices for the overt offices and a clerical pool and a -testing service for the
Agency; Personnel Division (Covert) was established to provide placement,
personnel relations, and transactions and records service for the covert
offices; the Classification and Wage Division was established to provide a
central wage and salary administration program; the Personnel Procurement
Division was set up to provide-a central recruitment service for the Agency,
replacing the recruitment services formerly provided by the Placement Branches
of the two Personnel Divisions; the Military Personnel Division, which had
previously been located in the overt Personnel Division, was set up independently
to continue its function as the central military personnel unit.
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Leadership of Personnel Office
Mr. Judson Lightsey was appointed Personnel Director and served until 25X1A
early in 1948. Mr. William J. Kelly occupied the position until mid-1951, at
which time the position of Assistant Director (Personnel) was created. _
25X1A U.S.A.R., was appointed in July 1951 as Assistant
25X1A Director Personnel and shortly thereafter formerly
Deputy Personnel Director, assumed the position of Acting Personnel Director.
(7In March 1951, left the Agency and was succeeded by Colonel
25X1X1A who is presently serving as Acting Assistant Director (Personnel);
was designated as Personnel Director.
Special Authorities sponsibilities of Personnel Office
Two of the primary aims of the Office of Personnel have been to handle
day-to-day staffing operations as efficiently and expeditiously as possible and,
at the same time, to set up a personnel organization and program which would
serve the Agency's needs at the present and in the future. Because of the
nature of the functions performed by CIA, there are many unique problems which
cannot be solved by following customary Federal personnel policies, procedures
and practices. In recognition of this fact, the Agency has been exempted from
various requirements generally established for Federal agencies. For example,
the Civil Service Commission in September 1947 excepted the Agency from all
civil service competitive examination and certification procedures which are
normally followed in making Federal appointments. The Congress in October 1949
exempted CIA from the Federal position classification and compensation system.
Previously, the National Security Act had vested in the DCI authority to effect
terminations of employment whenever deemed rfnecessary or advisable in the
interests of the United States"---despite other provisions of law governing the
separation or removal of Federal employees.
Staffing Requirements
Only recently have the staffing needs of the Personnel Office become fully
recognized. The expansion of personnel in the various operating segments ampli-
fied and intensified the activities performed in the Personnel Office by a staff
which constantly shrank in proportion to the total agency staff. For this
reason, it was often necessary to neglect major programs of personnel manage-
ment in order to provide the recruitment effort essential to locating and
initially assigning personnel. Numerous programs, such as placement follow-ups,
designed to determine the effectiveness of initial assignments and to ensure
the most propitious placements of personnel, establishment of qualifications
standards, to ensure the obtainment and utilization of the best qualified indi-
viduals, and establishment of classification standards, to ensure equal pay for
substantially similar work, were desired but could not be realized because of the
need for concentrating all available efforts on immediate problems. Heavy hiring
operations were carried on in an atmosphere of pressure and uncertainty as to
needs, and without the assurance that the individuals recruited would adequately
serve the Agency's requirement for an effective, productive work force.
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In retrospect., it is apparent that if additional staff had been provided
for instituting these needed programs., the staffing job would have been more
effective.
Growth of the Functions and Internal
Organization of the Personnel Office
In the wake of a growing awareness that the Agency required more than a
hiring hall to meet its personnel needs came a decrease in previous reluctance
to the establishment of an adequate personnel organization. The results of
this recognition are reflected in the scope of operations now performed by
the internal units of the Personnel Office.
Personnel Studies and Procedures Staff
The Personnel Studies and Procedures Staff was set up to assist the
Personnel Director in all phases of the personnel program. It has played a
major part,since its inception in developing hitherto neglected functions.
This Staff was activated in April 1951 with the stated purpose of surveying.,
reviewing and reporting to the Personnel Director on all phases of the per-
sonnel program, field and departmental; developing and coordinating legislative.,
budgetary, procedural and reporting requirements; planning., developing and
conducting studies of personnel office organization,. staffing., standard oper-
ating procedures., and special management projects and studies as required.
who is now the Deputy Personnel Director., was appointed
as the f re t Chie_ of this Staff; replaced as
Staff Chief in early 1952? 25X1A 25X1A
Personnel Procurement
In late 1950 the personnel procurement function of the former Procurement
and Placement Branches was separated from these Branches and was established
in North Building as the Personnel Procurement Divis ion. It was assigned the
responsibility for all Agency personnel recruitment. Although this was the
first time that the Agency had established a unit for the sole and specific
purpose of locating and interesting personnel in CIA employment, the demand
for increasing numbers of qualified applicants had grown so urgent that this
measure was necessary* of the covert Placement and
Procurement Branch who ha been very closely associated with earlier field
recruitment efforts assumed the role of acting head of the new Division, until
the selection and appointment of as chief. Although the25X1A
T/O of the new unit represented a substantial increase over the manpower formerly
Allotted to recruitment, only 19 positions were originally authorized. These
were later increased to M
25X1A
It became increasingly apparent that field recruitment would have to be
intensified if the Personnel Office were to accomplish the task of staffing
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25X1A
25X1A
25X1A
25X1A
25X1A
the ever-growing Agency. It was obvious that recruiters had to be responsible
citizens of broad acquaintance in the worlds of business, industry,, education,
science, etc., and it was also recognized that this staff should be allowed
maximum flexibility and freedom, consistent with security requirements, in
contacting potential candidates for vacancies.
A survey and re-evaluation of the functions and accomplishments of the
Personnel Procurement Division was conducted in April and May of 1951 which
resulted in a further re-organization of the Division and contributed to the
approval of staff increases. During the course of re-organization,
was assigned to the position of Division Chief and
became Assistant Chief. Since January 1952
has occupied the position of Division Chief.
nated as the first Assistant Chief and recently
assigned to this position.
Placement.
In the original central personnel unit the leadership of the procurement
and placement function was provided by who was subsequenti
promoted to a k osition in the Agency. was succeeded for a .21 short time by who is now Personnel Director,.;
was succeeded by , now Assistant hief 'er sonne
Procurement Division. ' 'k....F.. . _.. h.. y.. ' :r
As the concept of separate personnel staffs for overt,and covert opera-
tions was imposed, the overt placement function was placed initially under.
the supervision of , currently Personnel Officer for OSO
and later under who is still serving as Acting Chief of
p ant activity represented so large a volume of work that subsequent review
to determine whether these initial placements were satisfactory or not was
impossible. It is probably in this area that the Agency pays most heavily for
sacrificing a well-rounded program to the demands of recruitment.. Especially
in the face of uncertainty as to the types of people needed for various posi-
tions it becomes important to evaluate the success of placements to determine
which kinds of qualifications have been more successful. Also, it is probable
that a high number of potentially qualified personnel who were lost to the
Agency because of job disatisfactions which might have been discovered through
placement follow-up. Losses in terms of personnel assigned to positions which
were performed adequately but were not best suited to individual capabilities
are unmeasurable but again may be reasonably estimated in substantial number.
that unit. The covert placement function was first the responsibility of
now Assistant Chief, Personnel Division (Covert),
and is currently under the leadership of 25X1A
The placement units, when operating as a combined procurement and place-
ment activity, were almost totally concerned with obtaining and initially
assigning personnel. Even when relieved of procurement activity, the initial
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The concept of the Placement Officer as the liaison between the Person-
nel Office and the operating unit is becoming a reality. The Placement of-
ficers are required to be in close and constant contact with operating officials
and are encouraged to use these contacts in every possible way to improve the
over-all personnel program in the Agency. This concept is predicated upon the
fact that the real Personnel Managers of the Agency are the numerous supervisors
who deal daily with the many members of the Agency. The Personnel Office staff
cannot possibly maintain the close association with each individual in the
Agency needed to achieve the ideal of a productive, well-utilized work force;
it can, however, offer expert advice and assistance to individual supervisors
and to Agency management which will contribute to establishing and maintaining
an effective working program of personnel management.
In the early days of the ,agency, a central Personnel Relations unit served
all offices except OSO. This unit was responsible for providing a full per-
sonnel relations program,, including employee counseling service designed to
provide personnel with counseling and guidance on matters affecting personal
adjustment, work productivity and job satisfaction; planning and administer-
ing various programs of employee services and activities, such as housing,
recreation, hospitalization, car pools, child care, education, blood donor
program, and fund raising campaigns; review and recommendation of appropriate
action in disciplinary cases; and the promotion of constructive handling. of
personnel grievances.
At first the personnel relations activity was essentially a fire-fighting
type of operation in that problems in that area were only brought to the unit's
attention when the last stages had been reached. The fire-prevention approach,
currently apparent, is another result of the growing awareness of the need to
put a genuine, well-rounded personnel program into operation in the Agency.
Fairly recent innovations in the program include a pre-exit interviewing plan
which attempts to spot and resolve separation cases before the qualified
persons finally decide to leave the Agency. Such cases may arise from per-
sonal dissatisfactions on the part of the individual which can be resolved or
from failure to reassign a potentially qualified individual who has remained
too long in a position not suited to his capacities.
The Personnel Relations Branch has played a major role in developing
organizational plans for an employee Welfare and Recreation Association.
Proposals for such a group have been made periodically for some time but only
recently were they given general approval by the Director of Central Intel-
ligence. Even though it is anticipated that the actual organization will be
operated by personnel of the Agency, present planning contemplates that the
Personnel Relations activity will continue to assist in various ways.
Although the Personnel Relations functions theoretically evolved in the
same pattern as other personnel functions, the reorganized unit in the Overt
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Personnel Division provided the central service in fact until the recent acti-
vation of the Personnel Relations Branch of the Covert Personnel Division,
25X1A
The central unit was originally headed by who was succeeded
by hieoM Subsequently, was designated
Acting C a 11 and . assumed this position in late25X1A
Spring, 1952. The new unit on the covert side is headed by
25X1A 25X1A
Transactions and Records
The Transactions and Records Branches are often overlooked because of their
primary concern with the papers of the personnel activity rather than with the
individual represented by these papers. It is, of course, essential that proper
records be maintained and that personnel actions be properly processed to meet
all legal and regulatory requirements. This assumes that personnel actions must
be properly authorized within the Agency and that an accurate record be kept at
all times of the staffing status of the Agency. The Transactions and Records
Branches therefore are responsible for actually processing appointments, promo-
tions, separations, etc., and for assuring that these actions are taken under
proper authority and reported to proper offices. The position controls or
inventories are mairtined, showing a record of each position authorized in the
Agency according to its grade, salary, organizational location and occupancy.
When personnel are transferred, the service record cards, which serve a dual
purpose as a record of the particular individual's Federal employment and as a
record of the staffing of the particular job, must be transferred appropriately.
Proper notation must be made when a candidate,is placed in process for a particu-
lar vacancy in order that two individuals will not be recruited for one job.
As the source for the official personnel documents concerning the indivi-
dual members of the Agency, the unit logically inherited the task of preparing
various statistical reports. It also performs many miscellaneous tasks which
must be done which are not inherently the responsibility of any particular
personnel function.
The Transactions and Records Branch of the covert Division is faced with
additional and unique problems in fulfilling this responsibility for overseas
operational positions. Certain special security requirements must be satis-
fied with respect to employment of semi.-covert and covert personnel in the
continental United States and overseas. Until fairly recently, this Branch
took care of all phases of integration into other Departments for cover pur-
poses although this responsibility has recently been transferred out of the
Personnel Office. The relatively simple matter of keeping books on personnel
awaiting overseas assignment or returned from overseas becomes alhirly com-
plicated matter. The particular security problems raised by the nature of
CIA's mission make the whole program of transactions and records-keeping diffi-
cult.
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Central Processing
Another function required of the covert Branch is that of providing
a central processing service for all personnel on the way to, or returning
from, overseas assignment. Originally, fiscal personnel handled the phase
of their processing related to fiscal matters, travel personnel took care
of travel functions, medical personnel took care of medical functions,
etc., with the result that the particular individual being processed was
required to visit various units in widely separated locations in going
through the various stages of processing. In addition, the need for
coordinating the activities performed by each of these offices complicated
the processing job. During the period in which there was a special Person-
nel'Division (Employees Division) located in the Special Support Staff,,
which provided administrative support to the covert offices, a central
Mervice was installed. In the subsequent reorganization, the service was
e~ abolished and each of the offices concerned resumed the practice of taking
care of its own particular segment of the job. The recent reactivation of
the central service was made upon request for a return to the simpler and
more efficient system.
J
Classification and Wage Administration
The Classification and Wage Division is responsible for allocating
Agency and NSC positions (parenthetically it may be noted that all person-
nel services for the NSC are provided by the CIA Personnel Office); develop-
ing Agency classification standards; conducting wage administration actbri-
ties for ungraded positions and for indigenous and foreign nationals
employed at foreign stations; providing job evaluation services and gidance
pertaining to salaries of agent personnel; directing, coordinating and
conducting job analyses, position surveys and the development of position
descriptions; advising and consulting with operating officials on classi-
fication activities and problems.; and collaborating with the Organization
and Methods Service in connection with the establishment of Tables of
Organization. In brief, the Classification and Wage Division is primarily
responsible for assuring that CIA wage and salary policies remain in
general alignment with the general Federal structure and that there is
similar pay paid for similar work.
Actually, the service provided by the Classification Division is basic
to much of the personnel program. To illustrate, how can job qualifications
be determined without a knowledge of what is to be done? How can training
programs be set up for particular groups of jobs if there is insufficient
information as to the nature, difficulty and responsibilities of the posi-
tions affected? Thus, it is obvious that the Classification and Wage Divi-
sion, in addition to pricing positions, provides services which are funda-
mental to the entire personnel structure.
The Central Intelligence Agency has been excepted from the requirements
of the Classification Act of 1949 which prescribes position classification
and salary administration requirements for most Federal agencies. The
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Director of Central Intelligence has stated his intention, however, that
the Agency adhere as closely as possible to the principles and policies
stated in the Act. Prior to its passage, there had been an earlier
understanding with the Civil Service Commission that the Agency was privi-
leged in position classification by virtue of authorities contained in
P. L. 110, and the previous Commission practice of reviewing Agency
position allocations discontinued.
From the outset, it had been apparent that certain unique functions
or combinations of functions not normally performed made it difficult, if
not impossible, to fill all CIA positions in accordance with the established
structure of position classes. The only alternative to arbitrarily placing
positions in the established class most nearly approximating the CIA
position was to set up specifications for unique positions, At the risk
of repeating too often the story of too few people to do the job required,
it should be noted here that the original staffing allotted to the task
of position classification did not permit approaching this program in the
most efficient manner. Because it has not been feasible previously to
adapt available uniform standards for classifying jobs and little could be
done to establish general descriptions against which individual jobs could
be measured, classification has of necessity been accomplished against a
number of standards, including existing Commission standards for all jobs
of a similar nature and surveys made within the Agency on an individual
basis. The current program of the Division includes setting up the neces-
sary criteria.
Obviously, the position information required to serve the needs of
the Division and other personnel activities must be recorded; for this
reason, the Division prepares written descriptions of the duties performed
in each job and periodically reviews these descriptions to keep them on
a current basis.
Touching very lightly on the topic because of the security considera-
tion involved, it is simply noted that the organization of certain missions
requires advice on salary structure outside the Federal system. The
Classification and Wage Division is charged with Personnel Office.responsi-
bility in this regard.
Finally, this Division, because of its knowledge of the particular
duties performed and the kinds and numbers of personnel required to do them
is responsible for assisting the Organization and Methods Office in estab-
lish 2n TAables of Organization for various Agency components.
25X1A
, original chief of the Classification Branch,
was. replaced by the present chief. In the period
since 1947, however, the classification and wage function has been shifted
in the same pattern as other personnel functions. In the re-organization
following the inclusion of OSO among the offices serviced by the central
administrative units--and it has hitherto been omitted that the tremendous
growth of OPC began at about this time--a covert classification Branch was
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25X1A 25X1A
established in the special Support Staff with as
Chief, were successively
Chiefs of the overt Branch. The position of Classification Officer
was established in the Personnel Director's Staff and 25X1A
25X1A functioned in that capacity.
Pool Administration, Testing and Training
One of the special problems experiended in staffing the Agency was
raised in connection with the long period of time required to obtain security
approval for the employment of any individual. At a time when various
agencies were also interested in recruiting many classes of personnel,
CIA was at a distinct disadvantage in being required to delay entering
personnel on duty for months when other employers could offer almost
immediate employment. As a part of the solution to this problem a plan
for granting provisional clearances was developed which permitted the
employment of personnel to perform unclassified work during the investi-
gation period. A pool was set up under the jurisdiction of the Personnel
Office to provide supervision for clerical personnel employed under this
arrangement. This pool has grown from a small-scale operation to a large
unit which not only sustained itself by the amount of productive work
performed for various offices of the Agency but has also been utilized for
training personnel prior to permanent job assignments.
The training aspect of the pool became increasingly important as the
severe competition of clerical personnel made it progressively more diffi-
cult to recruit individuals with skills at an acceptable level. At the
present time, an improved training program designed to equip personnel with
the background needed to assume Agency jobs without additional on-the-job
training in Agency methods is contemplated.
Organizationally, the Pool was initially sponsored by the Testing and
Evaluation Section, Procurement and Placement Branch, and was later sepa-
rated from that Section and placed under the cognizance of the Placement
Branch. In a subsequent re-organization, it was returned to the Testing
Branch, which was then re-named the Testing and Training Branch. In a
very recent change, the pool was again separated from Testing and is now
the Interim Assignment Branch of Personnel Division (Overt). This arrange-
ment places responsibility for administering the pool in the personnel
Office and responsibility for training operations in the pool in the
Training Office.
25X1A The testing activity was initiated in October 19L7 under the direction
of Testing service was initiated to assist place-
ment and operating personne in making decisions about individxals in con-
junction with the other information available to them--employment and
educational history, interviews, etc. This activity was started on a very
small scale and confined to testing clerical ability, typing and steno-
graphic skills of clerical personnel. One of the earliest research projects
undertaken was a validation study of these tests. As the demand for
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testing service increased, the program was extended to include all person-
nel for positions in GS-9 and lower grades. Naturally, this required
comparable expansion in physical and staff facilities as well as in test
research and development activities.
The early achievements of the unit included the development of test
batteries appropriate for various general types of positions, such as
Intelligence Officer, Administrative Assistant, Librarian, Secretary,
etc. It must be admitted that the total research program necessary to
support a testing service of this scope was limited, due to the lack of
adequate staff. Unavailability of specific and accurate job information
further hampered the program. The activity continued to provide advisory
service with a minimum program of research, however, by relying heavily
upon the professional judgement of the staff members and the knowledge of
the Agency which they acquired. After promotion in the
fall of 1949 to the position of Chief of the newly created personnel Div-
ision, under the Administrative Support Staff, the unit functioned without
any incumbent in the Chief's position until the summer of 1950. At that
time, was appointed Chief, Testing and Training Branch.
Military Personnel Administration
The Military Personnel Division is the only personnel unit concerned
with military personnel activities and has full responsibility for all
phases of the military personnel program. This Division is an outgrowth
25X1A of the Headquarters Detachment, CIA and the Naval Command; these units
were established initially under . In subsequent re-
organizations, the Military Personnel Branch was established as part of
25X1A the overt Personnel Division and now operates as a Division of the Personnel
Office. Lt. Colonel was in command of this unit from
1948 until quite recently when he was relieved by 25X1A
This Division has grown from a small group of enlisted personnel to
a sizeable Division of several branches concerned with various phases of
personnel activity.
Career Service
In a letter to the Honorable John McCloy, dated 17 March 1951, General
Smith expressed an interest in building up a corps of well-qualified men
here who are interested in making a career with the Central Intelligence
Agency. The Office of Training prepared a plan which was transmitted to
the DCI on 3 July 1951 by Colonel Matthew Baird Director of Training. 25X1A
This plan had received the indorsement of Assistant
Director for Personnel, and was approved, in principle, by the DCI on
244. July 1951. It was distributed to the Deputy Directors and the Assistant
Directors on 7 August 1951, under the title, "A Program for the Establish-
ment of a Career Corps in the Central Intelligence Agency," and the
comments and recommendations of the Deputy Directors and Assistant Directors
were obtained.
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25X1A
As a consequence of these recommendations, the DCI, on 1 Se tember
l 1 established a Career Service Committee. consisting of
25X1A
Assistant Director for Personnel (Chairman),
25X1A Assistant Director for the office of National Estimates,
Assistant Director for the Office of Special Operaions, a 1A
25X1A Colonel Matthew Baird, Director of Training, The Committee was directed
to implement the.. proposal to establish a Career Program in CIA, and to
resolve such differences of opinion as had been voiced by the Deputy Directors
25X1A and Assistant Directors in their comments and recommendations. he
Committee selected to act as its Executive Secretary.
The Committee first met on 24 September 1951,9 and between then and
the transmittal of its Final Report in June of 1952 it held twenty-eight
meetings. The Committee established eight Working Groups as follows:
SELECTION CRITERIA, EMPLOYEE RATING, CAREER BENEFITS, TRAINEES, EXTENSION
TRAINING, ROTATION, PERSONNEL DEVELOPMENT PROGRAM AND HONOR AWARDS. Each
of these working groups was assigned a series of specific problems and
the Executive Secretary was directed to coordinate the activities of the
Working Groups. The Committee and each of its Working Groups kept detailed
records and minutes of their proceedings so that it would be possible for
full coordination of the intricate and complex aspects of the establishment
of the Program to be effected. More than sixty key executives of the Agency
have taken an active part in the activities of these Working Groups in the
development and planning of the Career Service Program.
25X1A
25X1A Mr. Walter Reid Wolf. Deputy Director (Administration), became Chnan
of the Committee when the resignation of became effective
in April. was unable to continue as an active member
of the Co ee a is p ace was taken in January by
Assistant Director for the Office of Current Intelligence.
25X1A
Among the many persons and organizations with whom the Committee
conferred, or whose advice and assistance were given on an informal basis,
were Mr. Ewing W. Reilley of the firm of management engineers, McKinsey
and Company, Mr. Harvey H. Bundy, former Assistant Secretary of State and
co-author of the Hoover Commission Task Force Report on Organization for
the Conduct of Foreign Affairs, the.Ford Motor Company, Standard Oil
Company (N.J.), Trumbull Electric, Johnson & Johnson, United States Rubber
Company, the W. L. Maxson Corporation, Bell Telephone Company of Canada
and Koppers Company, Inc.
The Career Service Committee made a Program Report to the DCI on
22 January 1952 in which the, general framework of the proposed Career
Service Program was sketched. On 7 March 1952 the Committee received the
DCI's comments on the Progress Report which listed eight major points,
each containing a number of items which the DCI wished to have considered.
As a result of this, four of the Working Groups were cd'ed back into exis-
tence, a new one established, and during the months of April and May the
final matters of controversy were resolved and the final details of the
proposed Program were planned.
17 ' a
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The Final Report of the Committee was transmitted to the DCI on
11 June 1952, and he approved it on 13 June 1952.
Rt fovi
of (Arley ~eyvicf egyn M #et i~ #I .
PSPS/BHB.CF:nmcl9 June 52
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