SUMMARY OF THE PROPOSED CIVILIAN INTELLIGENCE PERSONNEL MANAGEMENT SYSTEM (CIPMS) IN ARMY
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Collection:
Document Number (FOIA) /ESDN (CREST):
CIA-RDP90-00530R000500910002-0
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RIFPUB
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K
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8
Document Creation Date:
December 27, 2016
Document Release Date:
May 2, 2013
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2
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Publication Date:
January 1, 1988
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REPORT
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January 1988 c"7-'
SUMMARY OF THE PROPOSED CIVILIAN INTELLIGENCE PERSONNEL
MANAGEMENT SYSTEM (CIPMS) IN ARMY
1. Congressional Intent
Section 504 of the Intelligence Authorization Act of 1987 (PL 99-569), passed
in October 1986, authorized the Secretary of Defense to establish a separate
excepted service civilian personnel management system for the Army, Navy, and
Air Force Intelligence Communities. Section 504 delegated broad authorities.
It did not specify what would be the features of the new system other than that
they should overcome the problems inherent within the existing personnel manage-
ment system. Those problems were generally seen to stem from a lack of compa-
rability of systems and compensation practices among the various agencies within
the Federal Intelligence Community. This lack of comparability resulted in lower
quality job applicants than desired, high personnel turnover, and excessive
interservice competition for personnel. Specifically, the Secretary of-Defense--
was provided broad authority to establish positions, appoint individuals, fix
compensation, and terminate employment, in very special cases, without appeal
outside the Department of Defense. These broad authorities largely parallel
those already granted CIA, NSA, and DIA.
2. Developmental Process
Upon passage of this Act, the three services established both a tri-service
Executive Steering Committee and a Working Group to plan and oversee a coordi-
nated effort to design and then implement the new system. Each service also
established service level working teams for position classification; recruitment
and placement; management-employee relations; and training, development and
career management that would design and propose their service's concepts for
the system. The Department of Army relied upon MACOM Career Program Managers
and other key careerists to staff these working teams. After each service
completed their concept design, they met in a series of tri-service meetings
to hammer out both the general outlines for the policies and principles that
had to be tri-service wide as well as those areas where each service would be
allowed to differ. The tri-service concept design has been approved by the
Deputy Chief of Staff for Intelligence (DCSINT), LTG Weinstein, has been con-
verted to a draft OSD Manual, and now awaits Secretary of Army and OSD approval
and a Department of Army implementing regulation. Efforts were taken to design
a system that would have familiar elements for supervisors and employees alike
while improving on the present personnel system by making it more flexible,
less complex, less burdened by administrative red tape, and more readily sup-
ported by line management. It should also be a system that would further civil-
lien integration within the MI Corps. Military and civilian supervisors and
employees can expect an orientation and/or training on the new system prior to
conversion. Supervisors will have to relearn much of what they knew about per-
sonnel management and be aware of new responsibilities. MACOM Career Program
Managers will also be key players in both the conversion process and the admin-
istration of the new system. Mr. James D. Davis, the Special Assistant to the
DCSINT, has been assigned by the DCSINT to oversee the development and implemen-
tation of this system. me. Richard Christensen and Ms. Sally Wagner, personnel
specialists from INSCOM, are assisting him. its. Wagner and Mr. Christensen can
be reached on AUTOVON 222-1262/1263 to clarify features of the concept design
or answer any questions. The Total Army Personnel Agency has also devoted a
Branch in the Program Development Division to assist this effort. Mrs. Diane
Lilienthal of that office can be reached on AUTOVON 221-9335.
Encl. 2
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SUMMARY OF THE PROPOSED CIVILIAN INTELLIGENCE PERSONNEL
MANAGEMENT SYSTEM (CIPMS)
3. Delegation of Authority
The Secretary of Defense has:
(a) Delegated authority to the Assistant Secretary of Defense for Command,
Control, Communications, and Intelligence (C3I) to establish functional mission
requirements for the personnel system;
(b) Delegated authority to the Assistant Secretary of Defense for Force
Management and Personnel (FM&P) to approve actual personnel management policies
and procedures;
(c) Delegated authority to the Secretaries of each-Military-Department to
establish positions and appoint individuals, and to implement and administer
the system; and has
(d) Delegated authority to the Secretaries of each Military Department to
remove employees without appeal outside the Defense Department when in the
interests of national security.
4. Policy Development and Management
a. ASD (C3I) and ASD (FM&P) will lead n Executive Steering Group with
functional service (intelligence) representation, to oversee the development
and administration of the CIPMS. The Army has served as Executive Agent rep-
representing the tri-services on that group.
b. The Services will participate on a tri-service working group to develop
policy and regulations, that will be submitted through each service's Assistant
Secretary for Manpower and Reserve Affairs, to ASD (FM&P) for final approval and
publication.
c. Within Army, the DCSINT will develop, the Deputy Chief of Staff for
Personnel (DCSPER) will review, approve, and promulgate, and the Assistant
Secretary of the Army for Manpower and Reserve Affairs will review and give final
approval to both Army level policy and policy proposed for OSD level approval.
d. The-ASD (FM&P) will review, approve, and publish regulations and policy
in manual format as proposed by the tri-services. Each service will supplement
where needed and permitted by the OSD manual.
5. Personnel Management Administration and Servicing
The CIPMS will be overseen within Army by a multi-functional service level
organization: that will develop and implement policy and procedures; perform
program evaluation; and perform liaison with both the other services, OSD, NSA,
CIA, DIA, and the competitive system. It will also develop and maintain stan-
dardized/generic task analysis based document:, (job descriptions, etc); and
provide on-site training, advice and assistance. MACOM Career Program Managers
will also assist as position management and resource managers, and as subject
matter experts when developing standardized/generic personnel documents.
Local operating civilian personnel offices will continue to service the CIPM's
widely dispersed work force in one of two modes: (1) as administrators of the
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SUMMARY OF THE PROPOSED CIVILIAN INTELLIGENCE PERSONNEL _
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process of personnel management where coverage in the CIPMS is small; or (2) as
both personnel management administrators and advisors where there is sufficient
concentration of CIPMS personnel to generate committed, personnel specialists
who are fully conversant with the system and who possess necessary clearances.
6. Employee Coverage
o? QC`
r
a. The tri-service Intelligen/Ce Corn"- ty proposes to convert approximately
9,500 employees to the CIPMS. About 4,400 s ould be converted within Army. Any
one of three criteria are proposed' o be us -d to determine coverage. Coverage ?
would be limited: (1) to employees in commands and activities that have a pri-
mary intelligence mission (such as those in the Intelligence and Security Command
or the Army Intelligence Agency); (2) to employees-engaged lifintelitgence wortc
in non-intelligence commands and agencies if they are eligible to register in CAS
115
the Defense Intelligence Special Career Automated System (such as those in the
GS-132, Intelligence Specialist series, and shortly those presently in the GS-
080, Security Specialist series not predominantly performing a law enforcement
function); and (3) to employees in direct support of intelligence functions in
non-intelligence commands if designated by either the Service Functional Chief
or by Major Commander's (such as Personnel Specialists, Secretaries, etc., in
such non-intelligence commands as U.S. Army Europe and the Army Materiel Command
who work in an intelligence organization such as a Deputy Chief of Staff for
Intelligence). Employees specifically excluded from coverage in the CIPMS within
Army that reside in intelligence organizations will be Senior Executive Service
employees, local foreign national employees, and national guard and reserve
technicians.
b. Employee Coverage is a very significant issue and has been controversial.
The Office of the Assistant Secretary of the Army (Manpower and Reserve Affairs)
initially believes that the best interests of the Army would be served to limit
the CIPMS to only "intelligence professionals". That office has directed that
consideration be given to including employees by series and function rather than
by organization. That office already accepts those in GS-080, 132, 134 and 1710
series working in an intelligence function, and appears favorably disposed to also
include those who perform scientific and technical intelligence functions (i.e.
engineers and scientists). The DCSINT will also reclama seeking total coverage
for INSCOM and AIA. It is vital however, that coverage be also comparable in
Air Force and Navy. It is therefore possible that OSD will largely determine
the policy on employee coverage. In any case, the ODCSINT will work closely with
the Office of the Assistant Secretary of the Army, the ODCSPER, and each MACOM
to ensure that the portion of Army's regulation on coverage will optimally bal-
ance the best interests of both the CIPMS and the existing competitive service.
7. Classification and Position Management
The tri-services will combine features of the general competitive service's,
the National Security Agency's (NSA), and the Defense Intelligence Agency's
classification and position management system:.
a. OPM's general schedule (GS) pay plan, grading structure (18 grades),,
and within grade pay increase structure (10 steps) will generally be retained.
NSA's primary grading standards for supervisory and non-supervisory positions
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SUMMARY OF THE PROPOSED CIVILIAN INTELLIGENCE PERSONNEL
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will be adopted for all covered CIPMS positions. DIA's career ladders will be
used in combination with a management to budget oriented cost control system to
manage position structures and cost growth.
b. A "grade banding" feature will be overlaid on the primary classifica-
tion standards as a mechanism to: promote general grade alignment between and
among the services, as the first step for managers to focus on the several major
career bands in preparation for possible later pay banding; and as a point of
interface between classification and career development programs. Bands will
be determined separately for professional/administrative two grade interval,
technical/assistant one grade interval, and clerical lines of work or "career
paths". Each band within a career path will contain two or more grades grouped
to reflect a general career level-such as entry, journeyman, expert?ar-senior
expert levels.
c. These career paths and grade bands will become a framework for estab-
lishing "carer ladders" for specific specialties. These career ladders will fit
within the appropriate career path model but will be modified to reflect actual
grading practices within Army. Use of career ladder diagrams to assist in clas-
sification is a feature adopted from DIA.
d. New position titles will often be established for intelligence and se-
curity specialties. There may also be a combination of those two specialties
into a general intelligence series to promote greater professionalism and better
mirror the military personnel management structure. Otherwise, position titles
and series will generally remain the same as for competitive service positions.
e. Supplemental occupational guides will be developed for intelligence
and security ("mission") specialties that will control series coverage and titling
practices. Guides may be written for any mission speciality with enough popula-
tion to justify the effort. The guides will also contain both descriptions of
common work levels (grade bands) and grade levels to assist managers in the clas-
sification process. Series coverage, titling practices, and grade determinations,
would still be obtained from OPM classification standards for most other lines of
work ("support series") until or unless these supplemental occupational guides
are published for them.
f. Short standardized and/or generic position descriptions will be eventu-
ally written/for each career ladder and grade level within each major command
or installation with the key determinations coded on the descriptions to allow
for later computerization. This approach will substantially reduce the adminis-
trative burden on line supervisors and promote equity within commands as well
as prepare for a future "paperless" personnel system.
g. Classification authority will be delegated through major commanders to
commanders or activity heads for redelegation to top line managers with budget
authority. Classification authority may likely be retained by the civilian
personnel office only where specifically approved by a MACOM. MACOM Intelligence
and Security Career Program Managers will become position management officers for
all covered positions within their command and will also oversee the management
to budget process.
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h. "Impact of the Person on the Job" or "Rank in Person" will be institu-
tionalized as an option for all lines of work to ensure that the total worth of
any position and its incumbent can be recognized in the classification process.
Such control mechanisms as management review boards may be established to period-
ically review nominations and recommend promotions to top management based on ser-
vice and command established criteria.
I. "Dual track" career ladders will also be promoted for all lines of work
to ensure, within reasonable limits, that progression to the highest grades in a
job specialty will not solely be through supervisory jobs.
j. Classification appeals will be limited to the functional management chain
ol command up to a final service level decision from the DCSINT, The Office of
Personnel Management will not have classification oversight over the CIPMS.
8. Recruitment and Retention
Army's implementation of the CIPMS will reflect many of the goals set by the DA
Civilian Personnel Modernization Study for the larger competitive service.
Army's CIPMS should increase flexibilities for managers assuring them the degree
of control they need to properly exercise their responsibilities.
a. OPM's qualification standards (i.e.,- X-118) will continue to be used
but only as a guide. "Time in grade" and "years of service" will normally not
be used as arbitrary qualification screens. Instead, a careful review of an
applicant's documented qualifications will be compared with the actual require-
ments of the position developed in a short written crediting plan. Affirmative
action should be promoted by removal of these "barriers" to the selection, pro-
motion or reassignment of many minorities and women.
b. As a statutory excepted service program, 'direct hire authority will be
exercised for all positions. Referral lists will be obtained from either the
Defense Intelligence Special Career Automated System (DISCAS), on a courtesy
basis from Army level career programs, or from local merit promotion procedures.
A supplemental "skills bank" or other referral mechanism is planned to refer
outside applications within Army's intelligence and security community when they
cannot be used locally.
c. Delegations of personnel authorities will also be granted to the local
commander whenever possible to give commanders direct responsibility for their
personnel programs. Departmental level approvals will be expedited when approv-
al at that level is required.
d. Supervisors will be trained to negotiate with prospective employees on
recruitment and rentention compensation" that could include advanced in-hire
rates, first duty station travel, relocation expenses, "signing bonuses", etc,
to fill either "hard to fill positions" or to obtain superior candidates.
e. "Conditions of Employment" will be institutionalized in regulation as a
separate aspect of personnel management and will cover such topics as security
clearances; polygraph, urinanalysis and medical examinations; mandatory mobil-
ity; mandatory length of overseas tours; etc. Major commanders will be dele-
gated authority to impose or recommend imposition of any or all of these
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requirements on either a specific position or a class of positions where a
clear need can be demonstrated.
f. Employees entering CIPMS will be hired under or c.onverted to a statutory
excepted service appointment that will not earn competitive status for the com-
petitive system. Employees already possessing "personal" competitive status in
the competitive service will, of course, retain that status and be able to exer-
cise it, if and when, they seek later employment in the competitive system.
9. Career Management
DISCAS and the Intelligence Career Development Program (ICDP) should grow into
the domtnant referral and-career management system wtthin the-CIPMS._ Within
Army, the new Army Civilian Training, Education, and Development System (ACTEDS)
will be blended with the ICDP to ensure connectivity with both the excepted ser-
vice (ICDP) and the Army's competitive service career management system (ACTEDS).
a. DISCAS coverage will be expanded to include non-law enforcement Security 0
Specialists, GS-080 and Cryptological positions. At a later time coverage will ,
be further expanded to include all present two grade interval series to both 041
ensure an effective data base for manpower planning, and to promote movement
between services among "support" professionals (personnelists, logisticians, re-
source managers, etc). Employees will be first automatically included based
on entry into the CIPMS from existing personnel data and then be required to
file periodic updates to provide data otherwise not available, such as previous
experience, training, education, mobility, etc.
b. DISCAS will be utilized more and more as a major referral source but not
as a sole source within the intelligence community. Although presently a man-
datory system at GS-13 and above, DISCAS will experiment with various approaches
to required levels of referral for GS-132 and Scientific and Technical positions.
Local management will be largely responsible for determining areas of considera-
tion and for ensuring support for "corporate" affirmative action and career
management goals and objectives.
c. Each position in DISCAS will be coded during the classification process
as to function and specialty for manpower planning, program evaluation, and to
better determine needed competencies when management announces vacancies and
when employees register for referral consideration.
d. Specializations with significant populations will be identified and 4(0
subject matter experts appointed to develop career ladders (general progres-
sion paths), required competencies, and accompanying essential, desirable, and
developmental training and experience requirements. Once identified, required
competencies will become the core mandatory and desirable qualification require-
ments used in standardized crediting plans to screen and rank candidates. This
should ensure a steady and,directed growth in professionalism throughout the
CIPMS as well as ease the administrative burden on line managers and servicing
civilian personnel offices.
e. Employees with personal competitive service career status in series
covered by other Army career programs than intelligence and security (support
professions) will be encouraged to maintain their registration in those career
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programs voluntarily and pursue those program's recommended training and develop-
ment opportunities. Additional training and development to achieve career
management objectives of the intelligence community will be overlaid on existing
Army career program objectives, when necessary.
1 with f. Interns and executive development are planned to be centrally managed
the goal of steady growth for both programs. There will be, in addition,
a renewed emphasis on supervisory/managerial development utilizing the leader-
ship training being developed within ACTEDS for all of Army.
g. Army's existing training and development programs will be utilized for
non-career program (i.e., one grade interval and wage grade lines of work)
excepted service-employees. These programs coupled with greater flexibility
in assessing qualifications for developmental assignments should open up new
opportunities for wage grade, clerical, and technician/assistant personnel
within the CIPMS.
h. Existing competitive service training policies will be utilized by
the CIPMS in most cases.
10. Performance Management.
The CIPMS will heavily rely on performance based basic pay adjustments and cash
awards to reward and motivate employees.
a. Upon conversion to the statutory excepted service present Performance
Management and Recognition System (GM) employees will be converted tO the GS
system. The GM system will not be used within the CIPMS.
b. Each service will initially utilize their. present performance appraisal
system for competitive service GS employees except that "mechanical" determina-
tions of overall adjectival ratings will be discouraged. Supervisors will be
permitted to assign the most equitable rating. A study is planned, however, to
propose a tri-service unique excepted service appraisal system. In any case,
standardized or generic performance standards will be developed for many special-
izations, allowing managers and employees the ability to adopt or adapt "perfor-
mance contracts" from off-the-shelf that will be equitable for their specialty
throughout the Army. These standardized or generic performance standards will
also "link back" to standardized/generic position descriptions, training plans,
and crediting plans to assure consistency and uniformly promote functional career
management objectives.
c. Existing monetary award devices, such as quality step increases, sus-
tained superior performance awards, special act or service awards, etc, will be
utilized to promote "pay for performance". Most existing competitive service
restrictions on usage will, however, be dropped in favor of "manage to budget"
type organizational controls,to permit greater flexibility and equity in deter-
mining monetary compensation.
d. Although recent performance will be a significant consideration in de-
termining monetary compensation, managers will not be limited under the CIPMS
from considering such other factors as present compensation, past awards, past
performance, employee objectives and motivators, organizational budgets, etc.
Managers will also not be required to link a recent performance rating with any
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level or type of compensation or recognition but may choose to let the rating,
even an exceptional rating, speak for itself.
e. The existing comparability increase program used by the competitive
service will be adopted by the CIPMS. CIPMS must retain the 10 step within
grade system but the services will explore alternative methods of administering
this system to further promote the principle of pay for performance.
11. Special Termination Authority.
A unique feature of the CIPMS will be the provision to remove employees without
appeal outside the Department of Defense, when in the interests of the United
States, and when other removal provisions are not in the inteast of national-
security. This authority is designed to be utilized rarely only when an employ-
ee's conduct or performance warrants, when national security considerations
apply (when there is a reasonable possibility for compromise of intelligence
methods, means, sources, etc, if reviewed on appeal outside the Department),
and when an employee is not being accused of espionage. (Other long standing
provisions exist to speedily removed those accused of espionage). Full due
process rights will be afforded employees whose removal are processed under this
new authority to include the right to appeal a removal but only to the Secretary
of Defense.
12. Adverse Actions and Grievances.
Adverse actions and employee grievances over personnel actions will be unchanged
by the CIPMS except in those rare termination cases cited in paragraph 11 above.
All excepted service employees, however, who are not veterans preference eligi-
bles are already restricted from appealing to the Merit Systems Protection Board
and must grieve adverse actions through Army's Grievance System.
13. Military Intelligence (MI) Corps
Professional Army employees in two grade interval series engaged in intelligence
functions within the CIPMS belong to the MI Corps. The MI Corps is part of
the overall regimental concept being integrated within the Army structure. It
reflects a need to foster "branch" or "corps" identity and loyalty regardless
of assigned organization or job. The MI Corps will foster identity and loyalty
through publications, through the workings of the ICDP career management system
that directs and molds career development, and through the CIPMS itself that
will compensate those making a long-term commitment to the Corps.
14. Employee Benefit Programs.
Life and health insurance, unemployment compensation, and retirement programs
will not be changed by the CIPMS. Service obtained in both the competitive and
excepted services is creditable for these programs.
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