THE DCI HISTORICAL SERIES CIA SUPPORT FUNCTIONS: ORGANIZATION AND ACCOMPLISHMENTS OF THE DDA--DDS GROUP, 1953-1956 VOLUME II (CHAPTER III-PART 1)

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• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00708R000300090001-7
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 159
• Document Creation Date: December 9, 2016
• Document Release Date: January 5, 2001
• Sequence Number: 1
• Publication Date: July 1, 1960
• Content Type: PAPER

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CIA Historical Staff
CIA HISTORICAL STAFF
The DCI Historical Series
CIA Support Functions:
Organization and Accomplishments
of the DDA?DDS Group, 1953-1956
Volume II (Chapter III-Part 1)
Secret
HS-3, vol. II
July 1960
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WARNING
This document contains information affecting the national
defense of the United States, within the meaning of Title
18, sections 793 and 794, of the US Code, as amended.
Its transmission or revelation of its contents to or re-
ceipt by an unauthorized person is prohibited by law.
GROUP I
Excluded horn automatic
downgrading and declassification
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THE DCI HISTORICAL SERIES
HS 3
CIA SUPPORT FUNCTIONS:
ORGANIZATION AND ACCOMPLISHMENTS OF THE DDA-DDS GROUP
1953-56
VOLUME II (CHAPTER III-PART 1)
by
25X1A
1960
HISTORICAL STAFF
CENTRAL INTELLIGENCE AGENCY
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CIA SUPPORT FUNCTIONS:
ORGANIZATION AND ACCOMPLISHMENTS OF THE DDA/DDS GROUP,
25X1A
I. Overall
A.
1953-1956
by DCl/HS
Table of Contents
.
1
Management Matters
Scope of Support Activities 1953-1956 .1
?
B.
Management Advice and Inspection in Agency
as a Whole
7
C.
General Direction of Support Services .
.
.
14
Deputy Director
17
Special Administrative Support for DD/P .
?
?
26
Administrative Support for DD/I
35
Management Improvement Advisory Services
in DD/S
37
Staffing and Career Service in Support Area .51b
II. Financial Administration of CIA, Fiscal Years
1953=1956 52
A. Budgeting 52
General 52
Office of Comptroller 60
Budget Cycles for Fiscal Years 1953-1957. . 67
Summary . . . 85
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B.
Accounting for Vouchered and Unvouchered
Funds
91
Accounting Activities of the Comptroller
95
Audit Staff
102
Statistics of Vouchered and Unvouchered
Funds
112
III.
Manpower Management. .....
119
A.
CIA Personnel Strength and Other Personnel
Trends, 1953-1956
119
T/0, Ceiling and On Duty Strength
119
Pay Policies, Supergrades
143
B.
Career Service Program 1953-1956
151
Objectives
151
Career Services
155
Career Staff
160
Personnel Management Advice and Services . .
166
a.. Responsibilities . .....\
166
b. Office of Personnel. . . ...
168
(1) Location of Office of
Personnel. . .
170
(2) Organization of the
Personnel Office . . .
174
(a) Planning Staff . .
176
(b) Personnel Records. .
179
(c) Staffing the Office of
Personnel . . . . .
183
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CIA Recruitment Policies and Practices . . . . 186
a. Assessment Services 192
b. Recruitment of Junior Officer Trainees
(JOT's) 197
c. Recruiting Clerical Employees 211
d. Contract Personnel 215
e. Military Personnel 219
f. Recruiting Women for Career Service. ? 223
g. Recruiting Non-Whites for CIA Career
Services ....... ? ? ? ? 0 . 227
Personnel Utilization Policies and Practices . 233
a. Assignment, Rotation and Career
Planning 234
b. Employee Rating 243
c. Promotion Policies and Practices . ? ? 246
Personnel Classification Policies and
Practices ...... . ... . . . . . . ? 251
Termination Policies and Practices 258
\
Career Benefits 260
, .
General Trends ........ ' . . ? ? . ? . . 266
C. Training for Career Service. ? . . .. . 269
General Considerations 269
a. Concept of Training 269
b. Problems of Training ... ... . . ? 273
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Organization of Training 276
a. Location of Office of Training . . . 276
b. Internal Organization of Office of
Training 279
Training Activities. . 00 0 0 0 0?0 0 0 s 291
a. Training Support Activities 292
b. Clandestine Services Training 294
c. Courses on Communist and Anti-
Communist Operations 309
d. Intelligence Training. . .
. 311
O000
e. Management and Administrative Training 316
f. Language and Area Training 323
g. Training Program for Junior Officer
Trainees 329
Making Employees Available for Training. . ? ^ 336
Staffing the Training Function 341
D. Personnel Statistical Tables 347
IV. Logistics Management 364
Security Staff 378
Building Planning Staff 381
Planning Staff 385
Administrative Staff 393
Printing Services Division 398
Procurement 406
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V.
Real Estate and Construction 411
Supply 415
Transportation Services 423
Security Controls
441
Mission and Organization of Office of Security . . 451
Personnel Security Activities. . . . . . . ^ 461
Physical Security Activities 475
Operational Security Support Activities. . . ^ 481
Staffing 486
VI. Communications Support Activities 489
CIA and Other Agencies in Communications Field . . 490
Activities of the Office of Communications
0 ?
? . 499
Communications Security Activities 502
Support for Clandestine Activities 505
Communications Support for Emergencies 510
Supplemental Programs 512
Communications Research and Development Adtivities 513
Organization and Management of Communications
Activities 517
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CIA SUPPORT FUNCTIONS:
ORGANIZATION AND ACCOMPLISHMENTS OF THE DDA/DDS GROUP,
1953-1956
by DCl/HS
1/
CHAPTER III. MANPOWER MANAGEMENT?
A. CIA Personnel Strength and Other Personnel Trends,
1953-1956
T/0 Ceiling and On Duty Strength
In its brief "History of the Personnel Management
Function in the Central Intelligence Agency" prepared
for the Clark Committee, the Office of Personnel in
August 1954 described the general change in the Agency
personnel policy that came during the transition from
the Smith to the Dulles administrations as follows:
"Stabilization of staffing requirements appeared during
the Fiscal Year 1953 which, accompanied by changes in
the concepts of internal Agency security requirements,
made it possible to give increasing effort and atten-
tion to the overall elements of personnel management
within the agency."2/
1/ This chapter was drafted byIIIIIIIIIIIII in November
1959.
2/ Office of Personnel, Survey Task Force Black Book,
12 August 1954, SECRET, in files of OP.
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During the Smith administration, the rapidly ex-
panding scope of the Agency's intelligence and opera-
tional activities and commitments dictated an accelera-
tion of personnel operations to supply the increasingly
expanded personnel requirements. This is illustrated
by the increase in staff employees and staff agents on
duty from in December 1950, to in December
1/
1952.? These figures did not include foreign nationals,
contract employees, contract agents, or employees of
proprietary organizations who also increased in numbers.1/
In order to expand as rapidly as the Agency did, it was
1/ Staff employed and staff agents had to be U.S.
nationals. A staff agent was a person who was a
staff employee, but who, for cover purposes, re-
signed as a staff employee. During the period a
staff agent retained his rights as a staff employee.
2/ A contract agent was a U.S. or foreign national, en-
gaged under a written contract, either by headquarters
or in the field, to perform operational activities
(as distinguished from administrative or staff-type
support duties), outside the United States. A con-
tract employee was any individual employed on
either a full or part-time basis for the primary
25X1A purpose ncrformin staff-type support functions.
See CIA dated 22 August 1956,
Contract Personnel, , in Records Center and
Office of Training Reference Manual No. 0-1, January
1957, SECRET, in OTR files. For a discussion of
these non-staff employees, see below.
120
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necessary to set the personnel requirements even higher.
The maximum number of positions in the tables of or-
ganization of the Agency was reached in October 1952
1
when some positions were listed.?
The listing of positions in tables of organization
was one of the devices of personnel management used
2/
during the period 1953-1956.? As during the Smith
Administration of CIA, the responsibility for timely
submission of proposed T/O's or changes thereto rested
with operating officials, the responsibility for the
review of organizational and functional changes in T/O's
including quantitative evaluations as to manpower and
numbers and types of positions required rested with the
Management Staff under its different names and organi-
zational locations, and the responsibility for the review
1/ OP, Survey Task Force Black Book, 12 August 1954,
SECRET, in OP files.
2/ CIA dated 27 May 1952, SECRET;CIA
5 August 1952, SECRET; CIA
16 April 1954 and revision of 15 May 1956,
Tables of Organization, SECRET, and MEMMEMMOMMEMEM
111,1dated 29 November 1955, SECRET; all in
11s Center.
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of position classification changes rested with the
Office of Personnel. The Comptroller examined the
proposed T/O's in the light of budgetary, fiscal and
allied
Office
ters.
matters.
Where appropriate, the
considered problems of space and
The DD/A (subsequently DD/S) was
Logistics
related mat-
authorized
to approve those proposed T/O's which were concurred
in by all officials concerned. Where there was non-
concurrence, the proposal and all supporting papers
were submitted to DCI for determination.
During the period the T/0 was differentiated
from the staff ceiling. The latter was a limiting
figure which established the maximum number of per-
sonnel who might occupy positions on Agency T/O's in
duty status, at any given time, subject to availability
of funds./ It did not indicate what positions on a
T/0 should be occupied but merely how many. The ini-
tiative in the case of a T/0 change was with the oper-
ating official, who, if he was satisfied with his T/0,
1/ CIA dated 15 May 1956, Tables
of Organization, SECRET, in Records Center.
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did nothing until prodded. The Agency T/0 position
total at any given time was merely the sum total of
the office T/O's as obtained by a machine listing.
There was a tendency for T/O's to become out of date
since operating officials resisted losing positions
on their T/O's, as these positions could be filled
if the ceiling were lifted. A management survey of
a given office usually resulted in a proposal for a
1/
new T/0.? Changes in the Tb O took place piecemeal
and there was no requirement in the beginning of the
Dulles administration for periodic revision of the
T/0. On the other hand, the DCI on his own initiative
or acting on instructions from the President or the
Bureau of the Budget could set a single personnel
ceiling figure for the entire Agency. In setting
such a personnel ceiling figure, the DCI also fixed
a personnel ceiling figure for each of the main components.
1/ An example is Report of the Management Survey,
Office of Training, dated 14 January 1955, SECRET,
in Management Staff files, which is Request for
Approval of Table of Organization.
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Each Deputy Director was allowed to distribute this
personnel ceiling among the offices under him.-
1/
The personnel ceiling was not static. The annual
budget process usually brought personnel ceiling changes
at the beginning of the new fiscal year on the 1st of
July.' Releases from the reserve fund for new pro-
jects involving additional staff personnel would bring
increases in the personnel ceiling Liquidation of
projects involving abolition of staff positions would
bring reductions in the personnel ceiling. As in the
case of T/0 changes, the DD/A (subsequently the DD/S)
was authorized to approve personnel ceiling changes
agreed to by all officials concerned and to refer dis-
agreements to the DCI for determination.2/
At the beginning of the period the number of T/0
positions was much higher than the personnel ceiling.
1/ Memorandum for DCI from the Comptroller, 13 August
1956, Subject: Position Ceilings for use in Pre-
paration of FY 1958 Budget, SECRET, in Records
Center Job 59-419.
2/ See below, p. 127.
3/ CIA 16 April 1954 and revision 25X1A
of 15 May 1956, Tables of Organization, SECRET, in
Records Center.
124
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As of December 31, 1952 the number of T/O positions was
and the personnel ceiling wasallin, including
staff civilian and military personnel.1/ The difference
between the two figures as of this date may be explained
on the ground that, as planning documents, the T/O's
had been set during the Korean war and other crises when
it appeared that heavy demands would be placed on the
Agency and the revision of the position requirements
downward had been slow after the international sit-
uation eased and there was an anticipated change in
administration in Washington.
During the period the trend in the total T/0 posi-
tions was steadily downward with the biggest drop oc-
curing in January 1954._21 In July 1954 the DCI re-
quested the AD/P to prepare a directive which would
state a goal of reducing T/O's to ceiling figures.3/
?
1/ See Table 1.
2/ Office of Personnel, Survey Task Force Black Book,
12 August 1954, SECRET, in OP files and Table 1.
yw
3/ Memorandum for C/P & A Staff/OP from EO/OP, 28
July 1954, Subject: Reduction in Agency Strength,
SECRET, in Records Center Job 57-596.
IMO
ISM
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This continued to be the policy of the Agency for the
rest of the period as shown by the following statement
made by DD/CI on September 1956: "It will continue to
be the policy to have Tables of Organizations and ceil-
ings as nearly the same as is practical, bearing in
mind that the ceilings are, in effect, a control of
the on-duty strength rather than
tions on the T/0.".1../ By the end
jective substantially achieved.
the number of post-
of the period this ob-
As of December 31, 1956
the T/0 position total was ...Eland the ceiling total 25X9
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was During the second half of the period plans
were being made to modify the procedures for establish-
ing and changing T/O's in order to make them a more use-
ful tool of personnel management./
1/ Memorandum for DD/P from Acting DCI, 12 September
1956, Subject: Position Ceilings for FY 1957 and
FY 1955 to be Used in the Preparation of FY 1958
Budget and for Control of Current FY 1957 Operations,
SECRET, in Records Center.
2/ Office of Personnel, Staffing/Development Complement
Concept for Manpower Control, Initial Installation,
Office of Communications, 1955, SECRET, in OP files.
This concept was later embodied in CIA
14 November 1958, Ceiling and Position
Authorization, SECRET, in Records Center. See below,
p. 130 for discussion of these changes.
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-?
The personnel ceiling was closely related to the
budget process. Funds for personnel were always an
important item in the Agency budget. The original per-
sonnel requirements for Fiscal Years 1953 and 1954 were
contained in budget estimates prepared by the Truman
administration. The new Eisenhower administration be-
gan at once to investigate the possibilities of trimming
these estimates)-" On February 3, 1953, Mr. Dodge, the
new Director of the Bureau of the Budget, sent to all
agencies, including CIA, a letter calling for a review
of personnel utilization and vacancies, going and pro-
posed construction projects, and for the elimination
of unnecessary programs and restriction of others to
minimum leve1s.2/ As far as possible, agencies were to
eliminate vacancies.
1/ In his message on the State of the Union, delivered
February 2, 1953, President Eisenhower called for a
balanced budget and elimination of the deficit. See
President Eisenhower's Public Papers, 1953 ed. On
April 30, 1953, President Eisenhower reported on his
efforts to trim the Fiscal Year 1954 budget. New
York Times, May 1, 1953.
2/ New York Herald Tribune, February 4, 1953, gives the
directive.
127
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The estimates for personal services in original re-
quirements presented to Congress for Fiscal Year 1953
were based on existing tables of organization plus an-
1/
ticipated needs.? This method produced a requirement
of around positions. In November 1952 General
Smith made a statement: "It's a simple fact that while
we have budgeted for a rather large personnel ceiling,
we can't get qualified people to fill that personnel
ceiling. They just simply don't exist. We've gone
about the limit.
. So, my intention is to keep our
numbers down, to be selective instead of expansive, and
2/
look more and more to the juniors to fill senior posts.'
Before Mr. Dodge's directive had been received by CIA,
1/ CIA 27 August 1951, Call for Budget
Estimates, Fiscal Year 1953, CONFIDENTIAL, in Records
Center.
2/ Comments of General Walter B. Smith and his Answers
to Questions Submitted at the 8th Agency Orientation
Course, 21 November 1952, in Office of Training Bulle-
tin, 11 February 1953, SECRET, in HS files. General
Smith, in these remarks, did not use the word "ceiling"
in its technical sense. He probably meant budgeted
positions or total positions in T/O's.
128
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General Smith had reduced the original personnel re-
quirements for Fiscal Year 1954 by 25 percent.-
1/
Following the receipt of the directive from Mr.
Dodge, the DD/A of CIA recommended that each Deputy
review the situation in his area and submit to the
Comptroller, by February 20, 1953, his revised estimates
for personnel and funds for the remainder of Fiscal
Year 1953 and for Fiscal Year 1954. Mr. Dulles, who
became Acting Director on February 9 and Director on
2/
February 26, supported this move.? As a result of
the hearings before the subcommittee of the House
Appropriations Committee held in the spring of 1953
in which Mr. Dulles participated it was agreed that
the Agency would limit its civilian staff personnel
to not more than 3/
In connection with the
1/ Staff Conference, Minutes of Meeting Held in Direc-
tor's Conference Room, 9 February 1953, SECRET, SC-
M-43, in HS files.
2/ Ibid.
3/ In draft of Opening Remarks of the Director to
House Appropriations Committee, 16 March 1954,
SECRET, 1955 Cong. Material, in Records Center
Job 58-436, reference is made to position taken
a year earlier.
129
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allocation of funds and personnel for Fiscal Year 1954
made in August 1953 this ceiling was put into effect.
In essence it was based on the Dodge formula since it
took the on-duty strength of civilian staff employees
under ceiling as of June 30, 1953 plus some 500 addi-
1/
tional positions needed to carry out increased missions.
According to Office of Personnel figures, the ceiling
25X2
for civilian staff employees dropped fro/11111111as of
25X2
June 1953 to as of August 1954./ In addition
25X2
there was a ceiling of for military personnel
which remained unchanged for both of these dates. The
new ceiling cut below on-duty strength plus the number
3/
of those in process.? During the Fiscal Year 1954 the
1/ Memorandum for DD/P from Acting DD/A, 5 August 1953,
Subject: Allocation of Funds and Personnel for FY-
1954 and FY-1955, SECRET, in 1955 Bureau of Budget
Submission Files, in Records Center Job 58-436.
Similar memo's were sent to others.
2/ OP, Survey Task Force Black Book, 12 August 1954,
SECRET, in OP files.
3/ Ibid. The ceiling for August 1953, including mil-
.. 25X9 itary personnel, was the total military
and civilian personnel on duty was and the 25X9
25X9 number in process was 1,879. The sum of the last
... two figures is which is 1,343 above the
ceiling.
130
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personnel ceiling rose slightly each month and the
number of those in process dropped gradually until
March 1954 when those on-duty plus the number in pro-
cess equaled the ceiling. The more than 500 on-duty
civilians who were exempt from ceiling gave the Agency
1/
some flexibility.
The budgeted civilian positions in the estimates
presented to Congress in March 1954 for the Fiscal Year
2/
1955 were the same as for Fiscal Year 1954.
The CIA position was that the Agency should not get too
large and that it should plan to stay within this num-
3/
ber.? According to monthly figures compiled by the
Office of Personnel, the ceiling did exceed this number
1/ Ibid. These were project personnel who were paid for
out of funds for other contractual services.
NW
2/ Office of Comptroller, Congressional Budget, Fiscal
Year 1955, SECRET, in Records Center Job 58-436.
3/ Draft of Opening Remarks of the Director to the
House Appropriations Committee, 16 March 1954, in
Office of Comptroller, 1955 Congressional Material,
SECRET, Records Center Job 58-436.
131
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1/
during Fiscal Year 1955.? Increases in the budgeted
positions were made during Fiscal Year 1955 in the
2/
Director's Office and in the offices under DD/P.? The
additional requirements for personal services that a-
rose during the year were related to releases from the
reserve fund which were authorized by the Bureau of
the Budget for a new sensitive signal intercept pro-
ject and for additional cold war activities in the Far
3/
East, the Near East, and the Western Hemisphere.
In preparing for Fiscal Year 1956, the Agency in-
dicated to Congress in March 1954 that it wanted a
1/ OP, op. cit. As of December 1954 the civilian
25X9 ceiling figure given was which was 335
positions above the budgeted figure of
As of 30 June 1955 the civilian ceiling figure
(excluding project personnel) was Office
of Comptroller, Operating Budget Fiscal Year 1956,
SECRET, in Records Center Job 58-436.
2/ When the accounts came in for Fiscal Year 1955, they
25X9 showed civilian positions as compared with
25X9 positions in the original estimates submitted
o Congress for Fiscal Year 1955. See Congressional
Budget Fiscal Year 1957, SECRET, in Records Center
Job 58-437.
3/ Ibid. Lists each release and also gives positions
by organization unit.
132
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higher ceiling for civilian personnel in the budget.
Congress was requested to grant, and granted, appropria-
2/
tion authority for civilian positions.? In an
internal communication regarding the proposed budget,
General Cabell, Deputy Director, said: "We now have
a base infinitely better prepared to assimilate selected
development and expansion than we possessed in 1952.
Clearly our mission calls for expansion, limited only
by our ability to plan and absorb it in an orderly and
effective manner. Hence, we should, for example, de-
vote maximum staff effort towards the earmarking and
training of personnel assets for such future develop-
ment even if it requires lifting personnel ceilings
and dipping into 1956 reserve.
.7t-
3/
1/ Office of Comptroller, Draft of Opening Remarks of
Director to the House Appropriations Committee, SECRET,
March 1955, in 1956 Congressional Material file, in
Records Center Job 58-436.
2/ Office of Comptroller, Congressional Budget Fiscal
Year 1956, SECRET, in Records Center Job 58-436.
3/ Cited in Memorandum for DCI from DD/P, 10 August 1956,
Subject: Personnel Ceilings, SECRET, in Operating
Budget, Fiscal Year 1956 file, in Records Center Job
58-436. The date of General Cabell's note was not
given. It was a note to the Scope and Pace Paper
of 1 February 1955 which was approved by DCI on 21
February 1955.
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In preparing estimates for the operating budget
for Fiscal Year 1956, the various components requested
in July 1955 increases over civilian on-duty strength
1/
of approximately positions.? The DCI agreed that
certain high priority projects had to have additional
personnel but he was not convinced that such a large
general increase was necessary and practical. He felt
that the Agency should not expand appreciably without
consulting the Bureau of the Budget and Congress. In
a memorandum to the Deputies of August 5, 1955, he
stated his position on personnel:
It is my desire to keep the Agency as
small as possible consistent with the
successful accomplishment of our mis-
sion. It behooves us all to find ways
and means to do more without greatly
expanding our numbers. We must resist
any suggestions that we assume duties
which are not clearly our function or
which we have not been assigned as a
service of common concern. We must al-
so pay greater attention to the estab-
lishment of priorities and through con-
stant analysis and evaluation eliminate
1/ Office of Comptroller, Analysis of Position TbO
Ceiling, On-Duty 1956 Operating Budget, and 1957
Preliminary Estimates, SECRET, 28 July 1951, in
Operating Budget - Fiscal Year 1956 file, in Re-
cords Center Job 58-436.
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marginal projects and programs. We
sid should explore thoroughly all possi-
bilities of contracting for our work
to avoid increasing our numbers where
we can within the bounds of good
security .1/
Of the increases in civilian positions requested
for operating budget for Fiscal Year 1956, about one-
half were allowed. Three-fourths of the additional
positions allowed were used specifically for two sen-
sitive intelligence operations and for the signal in-
2/
tercept program.? The new budgeted civilian position
3/
total wasIIIIIIII Of this total some 500 positions
mew were not new. They were the positions for 500 project
employees who had formerly been budgeted under "other
contractual services."
wir
1/ Memorandum for Deputy Directors from DCI, 5 August
1955, Subject: Personnel, SECRET, in 0/DCl/ER
Personnel File 1955.
2/ Office of Comptroller, Draft of Statement of General
Cabell at Bureau of the Budget Hearings, 13 October
1955, SECRET, in Congressional Budget Material-
Fiscal Year 1957 file, in Records Center Job 58-437.
oar 3/ CIA, Estimate of Requirements Fiscal Year 1957,
Bureau of the Budget Submission, 30 September 1955,
SECRET, in Records Center Job 58-437.
rid
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In preparing its estimates for personal services
for Fiscal Year 1957, for submission to the Bureau of
the Budget the Agency presented practically the same
number of civilian positions as it used for the oper-
ating budget for Fiscal Year 1956.1/? In other words,
the big increases requested by the offices in their
original estimates of required positions were not
granted.'
? In a statement prepared for General Cabell's
use in connection with the Bureau of the Budget hearings
in October 1955, the view was expressed: "It is pro-
bably a fact that in the application of our resolve to
keep our ceiling down, we have penalized Intelligence
results. This is particularly true in the overt area
where the scope and depth of Intelligence analysis, and
hence the Intelligence product, is a direct function of
the numbers and quality of the personnel available to
do the work. Of course there are other factors too,
1/ Ibid., The estimated number of positions requested
for Fiscal Year 1957 was
2/ The increases were requested for the Operating Bud-
get for Fiscal Year 1956 and for Fiscal Year 1957.
Those granted for the Operating Budget for Fiscal
Year 1956 were carried over to the Estimates for
Fiscal Year 1957.
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but not in the direct proportion.' The same number
of civilian positions was requested in the Congressional
2
Budget for Fiscal Year 1957.? This budget was approved
by Congress without change.
In connection with the preparation of the Operating
Budget for Fiscal Year 1957, the offices requested an
dor 3/
over-all increase of 672 civilian positions.? The
DCI decided against granting these increases and held
each component to the number of positions requested in
4/
the Congressional Budget.? General Cabell, Acting
1/ Office of Comptroller, Draft of Statement of General
Cabell at Bureau of the Budget Hearings, 13 October
1955, SECRET, in Congressional Budget Material
Fiscal Year 1957 file, in Records Center Job 58-437.
2/ CIA, Congressional Budget Fiscal Year 1957, SECRET,
in Records Center Job 58-437.
3/ Memorandum for DCI from Comptroller, 18 August 1956,
Subject: Position Ceilings for use in Preparation
of FY 1958 Budget, SECRET, in Records Center Job 59-
419. This memorandum covered the Operating Budget
for Fiscal Year 1957.
4/ Memorandum for DD/I from Acting DCI, 12 September
1956, Subject: Position Ceilings for FY 1957 and
FY 1958 to be Used in the Preparation of FY 1958
Budget and for Control of Current FY 1957 Opera-
tions, SECRET, in Personnel Ceilings Used in FY
1958 Budget, in Records Center Job 59-419. Also
Noi
memorandums for DD/P and DD/S on same subject in
same file.
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Director, informed each Deputy that newer developments
would be given adequate support within the allowances
by dropping activities of lesser priority. He indi-
cated that he was particularly interested in the pro-
per staffing of a new activity of DD/I and of the ac-
tivities in the WH and NEA Divisions and the CI Staff
1/
of DD/P:-
The number of staff employees on duty was a con-
stantly changing figure which depended upon the balance
between the number of new employees entering on duty
(E0D's) and the number of separations. The Office of
Personnel reported the Agency gains and losses on a
monthly basis. The trend in the number of staff em-
ployees on duty was steadily upward during the period
except for Fiscal Year 1954 when there was a net loss
of 12. The number of civilian staff employees and
military personnel on duty as of December 31, 1952
was and the number on duty as of December 31,
2/
1956 was The net gain for the second half
1/ Ibid.
2/ See Table 1.
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of Fiscal Year 1953 was 358, the net gains for Fiscal
Years 1955 and 1956 were respectively 579 and 605, and
the net gain for the first half of Fiscal Year 1957
cent. This modest increase was in contrast to the
large increase in personnel strength between October
1950 and February
A marked trend for the period was the lessening of
the gap between the T/0 and the on-duty strength and
between the ceiling and the on-duty strength. Whereas
the T/0 at the end of 1952 was over the on-duty
strength, the T/o at the end of 1956 was only
the on-duty strength. The differences between the
ceiling and the on-duty strength were at the end
25X1A of 1952 and at the end of 1956. The small margin
in 1956 did not give the Agency much leeway in re-
cruitment.
1/ Personal Statistics given in CIA, Estimate of Re-
quirements Fiscal Year 1958, Congressional Budget,
SECRET, in Records Center Job 59-419.
2/ OP, Survey Task Force Black Book, 12 August 1954,
SECRET, in files of OP.
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In addition to the civilian staff employees and the
military personnel, both of which groups were composed
of U.S. nationals, the Agency employed temporary and
part-time employees, consultants and foreign nationals.
During Fiscal Year 1956, the average employment in man
years was for temporary and part-time employees,
25X9 for consultants, and for natives of for- 25X9
1/
eign countries.
Returning to staff employees, the figures for on-
25X9
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duty strength by department and field show varying rates
of change during the period. Departmental strength rose
from as of December 31, 1952 to as of Decem-
ber 31, 1956 or per cent and strength rose
fron or per cent. The addi-
tional employees on duty in installations
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were divided almost equally between special projects in
the Director's Office
The net foreign field on-duty strength declined from
1/ Congressional Budget for Fiscal Year 1958, loc. cit.
Earlier budgets did not give these figures.
2/ The offices of DD/I showed a net reduc-
tion of 36.
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or down 5.5 per cent. Reductions were
heaviest in and the Far East where changed po-
litical conditions made it difficult to maintain staffs
as large as they had been in early 1953. The end of the
brought a reduc-
tion in number of positions in Agency installations in
that country. The number of paramilitary and other po-
sitions was reduced in the Far East. Special procedures
were established to determine priorities as between
different overseas field stations. As these priorities
changed, the personnel strength of overseas stations
changed, subject to lags caused by scarcity of qualified
personnel, difficulties in establishing cover, delays in
project planning, and other delays.
On-duty strength of staff employees by main com-
ponent show that the largest net increases came in DD/S
and DCI areas. An increase of in the Office of the
DCI was largely in special projects and the message
center. The increases in descending order that contri-
buted to the nearly increase in the DDS area were
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furnished by the Office of Communications, the Office
of Personnel, the Office of Training, the Office of
Security, the Office of DD/S, the Office of the Comp-
1/
troller, and the Audit Staff.? An increase of
in DD/P departmental strength was offset by a re-
duction in its overseas installations, leaving a net
increase of As indicated above the reductions
in the on-duty strength in the foreign field stations
came largely in and the Far East. Increases
in DD/P departmental offices were made chiefly in FI,
2/
CI, TSS, and IO Divisions.? Despite the emphasis in
the DD/P area on rotation between headquarters and
overseas, there were fewer staff employees on duty
overseas at the end of the period than at the beginning.
In the DD/I area a =increase in the departmental
strength was offset by a decrease
strength, leaving a net increase of
25X9
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1/ Table 1, OP, Survey Task Force Black Book, 12 August
1954, SECRET, in files of OP, and personal statistics
in Congressional Budgets, SECRET, Fiscal Year 1955
through 1958, in Records Center Jobs
2/ Ibid. Some of the area divisions increased in strength,
both at headquarters and in the field, i.e., NEA and WH.
25X1A
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During the period the total number of military
personnel detailed to the Agency declined during the
calendar year 1953 then it rose gradually but it never
reached the
there were
January 31, 1954,
original level. As of December 31, 1952
military personnel on duty, as of
and as of December 31, 1956,
Declines in the military personnel assigned to the DD/P
and DD/S departmental areas were offset to some extent
by increases in military personnel assigned to 0/DCI
and 0/DD/S in installations. Military
strength in DD/P overseas installations remained at
slightly over
Pay Policies, Supergrades
The average GS grade of CIA staff personnel was
8.0 as of December 31, 1952, and 8.9 as of December 31,
2/
1956.? In terms of the distribution of GS grades, this
increase in the average grade was the result of two
factors. One was the increase in the proportion of
1/ Ibid.
2/ See Table 2.
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staff personnel holding grades GS-13-18 and the other
am+
was the decrease in the proportion holding grades GS-
01-06. The proportion of those holding grades GS-07-12
remained constant during the period for the Agency as
1/
a whole.
As compared with the average grade of all Federal
employees, which rose from GS-5.6 to GS-6.0 during the
period, the average grade of CIA employees was high.
On the other hand, when the Foreign Service staffs of
the United States Information Agency were converted to
GS grades, the average of USIA was higher than that of
2/
CIA for the calendar year 1956.? For the calendar year
1953 the average grade of the Civil Aeronautics Agency
was higher than that of CIA but after this year the
average grade of CIA forged ahead. When the Department
1/ An analysis of the grade distribution of men and
women shows that there were compensating trends.
The proportion of men in GS-07-12 grades declined
(from 63.5 per cent to 58.8 per cent) and the pro-
portion of women these grades rose (from 32.6 per
cent to 39.3 per cent.) When the two were combined
the ratio of total employees in these grades re-
mained the same for both dates.
2/ OP, Salary and Wage Division, Average Grade Trend
in CIA, Federal Government and Selected Agencies,
1951-1957, furnished to HS 8 June 1959, SECRET.
erg
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of State Foreign Service staffs were converted to GS
grades, the Department of State average grade was
higher in 1953 but lower in 1956 than CIA's average-
grade. As compared with the average grade of Atomic
Energy Commission and Federal Bureau of Investigation,
the average CIA grade was higher and showed a sharper
1/
increase throughout the period.
The Bureau of the Budget was concerned during the
period with the increasing average grade of CIA em-
2/
ployees.? Toward the end of the period a general
Budget Circular stated positively: "The estimates will
not provide increases in appropriations or other funds
3/
to cover within-grade salary advances."? In connection
with the hearings on the CIA Estimates for Fiscal Year
1957 held in October 1955, the Bureau of the Budget
suggested a decrease in the average grade. The Office
1/ Ibid.
2/ Comptroller, 1955 Bureau of the Budget Submission
Material, SECRET, in Records Center Job
Question 7 in Hearings of 20 October 1953.
3/ Section 3-H, Budget Circular No. A-11 (in re. FY
1958), ca. 1956.
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of the Comptroller pointed out to the DD/S that it would
be impractical to reduce the grades of employees in or-
der to meet the proposed cuts. The increase in average
1/
grade was connected with high priority activities.
The highest positions in the Agency, the supergrades
which included GS-16, 17, and 18, were under special
rules during the period. As of December 31, 1952, the
DCI himself was the final approving authority for the
2/
establishment of positions at the supergrade level.
In January 1954 the DCI issued a regulation which es-
tablished a Supergrade Review Board to review and rec-
ommend to him the disposition of all actions affecting
individuals assigned to or recommended for assignment
3/
to positions in the supergrade category.? The Board
1/ Memorandum for DD/S from Acting Comptroller, 21
November 1955, Proposed Budgetary Allowance for FY
1957, SECRET, in Congressional Budget Material-FY
1957, in Records Center Job 58-437. CIA issued a
notice on this subject later. See CIA
25X1A 1111111 26 February 1959, Career Service Average
Grade, SECRET, in Records Center.
25X1A
2/ CIA 4 February 1952 and1====,
25X1A 27 May 1952, SECRET, in Records Center.
3/ CIAIIMIRIFMMMM18 January 1954 and 23
February , Supergrade Review Board, SECRET, in
Records Center.
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was composed of DDCI, Chairman, DD/A, DD/I, DD/P, AD/P,
AD/C, and DTR, members, and D/S, C/MedS, and IG, non-
voting advisers. A year later the AD/C and DTR were
1/
left off of this Board.
The Position Evaluation Division of the Office of
Personnel assisted the Director of Personnel in preparing
the requirements for supergrade positions to be recom-
mended to the Supergrade Review Board, which reviewed
these position descriptions and finally approved them.
The supergrade system was periodically overhauled by the
Director of Personnel working with the Deputy Directors
who furnished facts regarding the organization, the tasks
to be done, and the qualities of persons needed to fill
the positions.
During the period the supergrade position structure
of CIA was revised several times. In the spring of 1954
the Supergrade Review Board recommended 1.40 per cent as
a reasonable rate for CIA supergrade positions on the
basis of comparisons made with the Department of State,
1/ CIA 7 March 1955, Super-
grade Positions, SECRET, in Records Center.
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the Atomic Energy Commission and the Federal Civil
1/
Defense Administration.? A survey made in 1955 con-
cluded that the composite supergrade ratio of the De-
partment of State, Foreign Operations Administration,
Atomic Energy Commission, and U.S. Information Agency
provided a sound and defensible basis for establishing
and periodically adjusting the CIA supergrade authori-
2/
zation.? For purposes of external Agency comparison,
all full-time positions with authorized salary levels
equivalent to or above the base of the GS-16 grade
level were included, regradless of the type of author-
ity for the rate. As of March 31, 1955 CIA had only
0.88 per cent of its employees in supergrade positions
as compared with the Department of State which had
nearly 2 per cent of its employees in such positions.
The Director concurred with the recommendation that the
1/ Summary of Review Board's Recommendations on the
Supergrade Position Structure of CIA, in 1955 Bu-
reau of the Budget Submission Material, not dated
but filed in May 1954 documents, SECRET, in Re-
cords Center Job 58-436.
2/ Memorandum for DCI from DD/S, 12 May 1955, CIA
Supergrade Structure, SECRET, in 0/DCl/ER, in
DD/S 1955-1956 file.
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CIA supergrade ceiling should be established at
1/
positions.?
The number of CIA employees holding supergrade p0-
sitions increased from as of December 31, 1952 to
2/
as of December 31, 1956.? Whereas the number of all
staff employees increased only 1. per cent during the
period, the number of employees in supergrades increased
25X1A Illiper cent.
The concepts which controlled the administration of
supergrade positions were formulated at the beginning of
the period. In the assignment or promotion of Agency
officials who were compensated at supergrade levels, the
results of position analysis and evaluation were advisory
rather than controlling. This was corollary to the prin-
ciple that supergrade rank was in the person, and that
supergrade individuals were subject to assignment in
any capacity where they were needed and for which they
possessed the required qualifications. The policy was
1/ Ibid. The CIA Congressional Budget Fiscal Year
1958, 1 February 1957, SECRET, budgeted uper- 25X9
grade positions for Fiscal Year 1957 an for
Fiscal Year 1958, Records Center Job 59-419.
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2/ See Table 4.
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to choose individuals for supergrade positions who had
the qualifications for exercising executive or special-
ized responsibilities within the framework of the
1/
Agency's mission.
1/ Office of Personnel, Concepts Controlling Admini-
stration of Supergrade Compensation in CIA, CON-
FIDENTIAL, furnished 0/DCl/HS on 21 January 1960.
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Aim
CIA SUPPORT FUNCTIONS:
ORGANIZATION AND ACCOMPLISHMENTS OF THE DDA/DDS GROUP,
1953-1956
by DCl/HS
CHAPTER III. MANPOWER 25X1A
1/
B. CAREER SERVICE PROGRAM 1953-1956?
.w
1. Objectives
The development of a corps of well-qualified in-
telligence personnel who sought to make a career of
im Agency employment was officially expressed by General
2/
Smith early in 1951.? During the balance of his ad-
3/
ministration of CIA? and during the first four years
of the Dulles administration, officials from all parts
of the Agency participated in intensive efforts to de-
velop a realistic program for selecting, developing
and appropriately rewarding members of such a corps.
1/ This chapter was drafted by in Nov. 1959. 25X1A
dig
2/ Director of Training, A Program for the Establish-
ment of a Career Corps in the Central Intelligence
Agency, 7 August 1951, SECRET, in Records Center
gni
Job 58-166.
3/ Memorandum for DCI from Chairman, Career Service
Committee, Final Report of the Career Service
Committee, 11 June 1952, SECRET, in Records Center
Job 58-166.
wig
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The activities of the CIA Career Service Board, estab-
lished in June 1952, and of component Career Service
Boards stimulated the interest of Key officials in per-
sonnel management and provided a means for ironing out
1/
personnel policy issues at the Agency level.?
"'"
On August 3, 1954, the CIA Career Conference,
".? called by the Career Council, successor on July 1, 1954,
to the Career Service Board, was convened for the pur-
pose of discussing the recommendations of the Board and
its task forces. The Conference was attended by the
Director and the Deputy Director of Central Intelligence,
"" the CIA Career Council and over 600 supervisors of the
Agency. The new regulations on the career staff, career
development of junior personnel, fitness report, promo-
tion, rotation, and career benefits were fully explained.
At this Career Service Conference Mr. Dulles re-
affirmed his strong belief in the desirability of a
career service which would furnish assurances of con-
tinuity, job satisfaction, and advancement. He also
stressed the vital role of supervisors in making the
1/ Staff assistance to the various Career Service Boards
and Panels was furnished by Planning Officers of the
Office of Personnel. See below, p.177.
wal
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career service a success, especially their responsibil-
ity for the proper selection, utilization, and promo-
1/
tion of personnel.
At the Bureau of the Budget hearings on October
27, 1954, General Cabell made the following statement
summarizing the features of the CIA Career Service
Program:
. . . The problem of a career service has been
under study for about three years and it was
officially started on August 3. Basically the
employee states that he intends to make a car-
eer of service with the Agency and agrees to
serve anywhere and at any time for any kind of
duty as determined by the Agency. The Agency
commits itself to give full consideration to
the employees particular capabilities, interests,
and personal circumstances. Under the program
the employee is assured a reassignment after his
return from an overseas assignment provided
his service has been satisfactory. Preferential
consideration will be given career employees
in special training and in filling vacancies
by promotion. It is planned to develop junior
personnel, through overseas rotation and special
training, into a hard corps of highly competent
employees who will assure competent direction
of the Agency in the future. Studies are now
being made of possible improvements in our career
program which may require legislative authori-
zation. These include special medical benefits,
educational allowances, a more liberal retirement
program, and certain home leave benefits for
air 1/ CIA 3 September 1954, Summary of
Information Presented at CIA Career Conference,
3 August 1954, SECRET, in Records Center.
owl
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employees who have served long periods of time
outside the continental limits of the United
States . . . The development of a strong career
service is considered essential to the long
term objective of establishing a highly trained,
competent, and dedicated staff which can most
effectively carry out the Agency's mission with
a minimum number of people.1/
In 1960, after some eight and a half years experi-
ence with various career service plans, the Inspector
General indicated that he regarded the chief purposes
of a career service in CIA to be: (1) A means to ad-
vance Intelligence as a profession, (2) a means to
assure the selection of capable young people, and (3)
a means to train and prepare the right individuals
2/
for top jobs for both the present and the future.
During the first four years of the Dulles admin-
istration of CIA progress toward the purposes mentioned
above was made along several lines. The development of
some two dozen Office Career Service Boards, the estab-
lishment of the Career Staff for the Agency as a whole,
improvements in the technical services and advice rendered
air 1/ Statement of General Cabell at Bureau of the Budget
Hearings October 27, 1954, SECRET, in Office of Comp-
troller, 1956 Bureau of the Budget Hearings Material,
in Records Center Job 58-436.
2/ Memorandum for DCI from IG, 29 January 1960, subject:
Inspector General Survey-Office of Personnel; Career
Service Program.
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by the Office of Personnel and other units of the
Agency concerned with personnel functions, the con-
tinued expansion of the Junior Officer Trainee Program
administered by the Office of Training, and improve-
ment in personnel management policies in the fields
of recruitment and personnel utilization -- all of
these developments contributed substantially to the
advancement of the career service program.
2. Career Services
At the beginning of 1953 the CIA Career Service
Program was controlled by the CIA Career Service Board
which consisted of the Deputy Director (Administration),
chairman, the Deputy Director (Plans), the Deputy
Director (Intelligence), the Assistant Director (Per-
sonnel), the Director of Training and, on a rotating
basis, two Assistant Directors. This Board was respon-
sible for developing policy governing the Career Service
Program and for supervising the functioning of (Office)
Career Service Boards which were located in each of
the major Offices and units of CIA and were responsible
to their respective Assistant Directors or Office heads
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1/
for the operation of the Career Service Program.
During the following four years there were changes
in the composition of the CIA Career Service Board,
the Board itself was replaced by CIA Career Council
in 1954, and the Office Boards were changed to fit
new organizational patterns. The Inspector General,
Mr. Lyman B. Kirkpatrick, became the Chairman of the
Board in place of Mr. Walter Reid Wolf, Deputy Director
2/
(Administration) on April 24, 1953.? Mr. Kirkpatrick
served as chairman until the Board was replaced by the
Council on June 25, 1954 at which time the Assistant
Director for Personnel was made the Chairman of the
3/
new Council.? At the time that the council was
1/ CIA 19 June 1952, SECRET, in Records
Center, indicated the approval by DCI of the Final Re-
port of the Career Service Committee, 11 June 1952,
SECRET. At that time the (Office) Career Service Boards
were established in OSO, OPC, OC, 00, ORR, OCD, OCI, OSI,
ONE OTR TSS PO MO GSO, I&SO, PSO, AND CO. CIA
25 May 1953, SECRET, in Records
Center.
2/ CIA
Records Center.
24 April 1953, SECRET, in
3/ CIA 25 June 1954, The CIA
Career Council and the Career Services, SECRET, in
Records Center, revised 25 June 1955 and 15 Decem-
ber 1955.
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created there were established some sixteen Career
1/
Services,? but these were reduced in December 1955
to five Career Services four of which has subordinate
2/
Boards or Panels.
In order to fix responsibility for the career plan-
ning of Agency personnel, all career employees, defined
as Staff Empll'es and Staff Agents, were given "career
designations."? The initial career designation was
predicated on the placement of career employees under
the Office Career Service Board which corresponded to
the type of work officially assigned. Any career em-
ployee could request a change in his career designa-
tion. Such a request had to be approved by the Career
Service Board concerned. The Assistant Director
1/ Training, Communications, Personnel, Plans, Cleri-
cal,(DD/P), Foreign Intelligence, Psychological
and Paramilitary Operations, Technical Services,
Intelligence Production, Collection and Dissemin-
ation, Operations, Administration, Budget and
Finance, Logistics, Medical, and Security.
2/ Clandestine Services, Intelligence Production, Op-
erations, Collection and Dissemination, and Support.
15 December 1955, SECRET, in Records Center.
25X1A 3/ CIA 20 May 1953, Determination
of Initial Career Designations, CONFIDENTIAL, in
Records Center.
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(Personnel) was made responsible for assigning an ap-
propriate career designation for each new staff employee
entering on duty. A two year tour of duty with another
component would not ordinarily affect a staff employee's
career designation. Thus, a Clandestine Services op-
erations officer with Foreign Intelligence as his career
designation might serve with the Office of Training for
two years without any change in his career designation.
The career service mechanism started with the op-
erating components and the Career Service Boards.
Supervisors recommended a promotion, a transfer, a
termination, a training assignment, an award and
this action was reviewed by the career service system
in order to insure that the decision took into consid-
eration office-wide and Agency-wide considerations.
In January 1954, the Inspector General told the
DCI that the Office Career Service Boards had "func-
tioned with varying degrees of effectiveness and auth-
ority," that some were "purely advisory" and that
others had more influence, that they concerned them-
selves largely with matters of promotion, transfers,
-di etc. -- personnel actions previously handled on a
amt
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the new services - the Intelligence Career Service -
would be limited to "the hard core of professional in-
telligence officers."
In defense of the system as it had existed, the
DD/S said that the Career Service had by no means been
a failure, and several important accomplishments should
be at least partially attributed to this system. He
thought that the program had done much to bring line
1/ OTR's History, 1950-1953, prepared in 1955 for HS,
SECRET, p. 33, citing Memorandum to DCI from IG, 26
January 1954, Career Service Program.
2/ Memorandum for DCI from IG, 29 January 1960, Subject:
Inspector General Survey-Office of Personnel; Career
Service Program.
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routine basis by executive action of the individual
offices, and that they had continued office nationalism
1/
and done nothing to further making CIA a career.
In a study of the Career Service Program made six
years later, the IG was again critical of the Office
2/
Career Service Boards and Panels.? He recommended
that the existing twenty-six services should be changed
to five services which would be divided along occupa-
tional lines (Administration, Clerical, Technician,
Specialist, Intelligence, and possibly a Communications
Service separate from the rest.) Membership in one of
.0111
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management to face up to its responsibilities in the
1/
field of personnel management.
3. Career Staff
The creation of the Career Staff on July 1, 1954
introduced a new and basic concept
2/
personnel administration of CIA.
been
various personnel programs in
in the long range
Whereas there had
the Agency before
this, notable among which was the Career Service Pro-
gram that had been in effect since July 13, 1952, there
had never before been a service to which an individual
could belong. The Career Staff was defined as a group
of carefully selected and trained individuals who ac-
cepted an obligation to devote themselves to the needs
of the Agency, and who intended to make a career with
the Agency. The idea of an elite corps was rejected,
and every staff employee or staff agent, regardless of
1/ Memorandum for DCI from DD/S, 19 May 1960, Response
to Inspector General's Survey on Career Service,
CONFIDENTIAL.
2/ CIA 11111...... June 25, 1954, The Career
Staff of the Central Intelligence Agency, SECRET, in
Records Center, Change 1, dated 8 September 1955 and
revision dated 6 December 1955, SECRET, in Records
Center. Application for Membership in the Career
Staff of the Central Intelligence Agency form was
Attachment A of the Regulation.
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grade, could apply. Consideration for selection into
the Career Staff was based upon voluntary application
by personnel who had completed the provisional period
of three years of satisfactory service with the Agency.
The application form indicated that the applicant
accepted the obligation to serve anywhere and at any
time and for any kind of duty as determined by the needs
of CIA and it assured him that, full consideration would
be given to his particular capabilities, interests and
personal circumstances, that just and equitable atten-
tion would be given to his personal progress, and that
reassignment compatible with his abilities and career
interests would be offered to him on his satisfactory
completion of any assignment.
The system was based upon mutual assurances, on
the part of the Agency as well as of the individual, of
good faith, intent and purpose, rather than on specific
and binding legalistic or contractual matters. The so-
called "benefits," therefore, were largely intangible
and demonstrable only over a period of time, rather
than being guarrantees of any specific promotion,
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1/
advancement, assignment or development action.? An
employee who failed to become a member of the Career
Staff would lose out on certain opportunities. He
would not be eligible for certain awards such as the
language awards, he could not be selected for one of
the major war colleges, and he would endanger his op-
portunities for rotation and promotion.
Since the system was based on the assumption that
each staff employee who had been with the Agency for
three years was a potentially suitable member of the
Career Staff, the selection criteria were negative and
were designed to seek out reasons why an individual
should not be granted membership. Procedures were
developed to review the record of each candidate in
order to make sure that the assumption about his suit-
ability was correct. The candidate's supervisor, the
Head of his Career Service, the Career Board, the Ex-
amining Panel, and finally the CIA Selection Board which
consisted of nine top officials including the Assistant
1/ Office of Personnel, Selection Staff Report on Pro-
_
grams and Program Plans, 1 July 1954-30 June 1955,
SECRET, in OP files.
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Director for Personnel reviewed the candidates record.
Members of the Panel of Examiners were appointed by the
Director of Central Intelligence from among the members of
? the Career Staff, GS-14 and above, nominated by the Heads
of Career Services and recommended by the CIA Selection
mei
Board. An examining panel consisted of three voting
examiners selected by the Executive Director of the CIA
1/
Selection Board.? Information concerning the work per-
formance, conduct or status of applicants was obtained
from the following seven Offices of Record: Office of
Personnel, Office of Security, Office of Training, Medical
Staff, Office of the Comptroller, the Inspector General,
..N
and Inspection and Review Staff. 25X9
During the first ten months that the Career Staff
system was in effect overillillitaff employees and staff
25X9 agents applied for membership. As of April 27, 1955 some
applications had been accepted and a ceremony was
held on that date inaugurating the CIA Career Staff. At
this ceremony the Director said that he could not think
owl
of any job that would give a man or woman a better
opportunity to exercise all his talents, his abilities,
25X1A
1/ CIA 25 June 1954, loc. cit.
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his ingenuity, than intelligence work. He added:
I don't know any line of work where a Career Service
is more needed than it is in intelligence. It is
only through training, it is only through experience,
it is only through trial and error--and we all make
.0 mistakes--that one can build up qualities and capa-
bilities to do good intelligence work, and it is needed
all the way down the line. The person who is working
in filing is just as important, in many ways, as the
person who is reaching the top decisions. If you don't
have your papers before you to make those decisions,
you don't make the right decision, and if they don't
get there quickly you miss opportunities. So I want
to tell each one of you, no matter what your particular
job may be, that it is vital to the entire teamwork of
the Agency. That is why we have this Career Staff
right across the board, and we are not sectionalizing
it in different departments or sections of the Agency.
It is one career, with various facets, whether one is
in the estimating side of the work or whether one is
in the intelligence gathering side of the work,
analyzing side, administrative side--it is all one work,
awl one career, and one great opportunity to do service
for the Government.1/
Applications for membership in the Career Staff were
ININd
accepted, deferred, or denied by the CIA Selection Board.
Those that were deferred were reconsidered every six months
until a decision was reached. As of December 31, 1956,
25X9 some on duty personnel had become eligible to apply.
Only 4.3 per cent had not returned their applications as
25X1A 1/ CIA June 10, 1955, The Career
Staff of the Central Intelligence Agency Ceremony
Inaugurating the Career Staff, SECRET, in Records
Center.
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of that date. All candidates were given 90 days to
return their signed applications or to prepare a re-
ply indicating why they were declining to apply. If
neither a signed application nor a declination was re-
ceived, an entry was made that the candidate had fail-
ed to return his application. Of thell'Illapplica-
eta tions which had been considered by the CIA Selection
Board as of December 31, 1956, were accepted, 147
smi
were deferred, 58 were denied, and 14 declinations were
1/
accepted.? In other words, only were de-
mi
ferred or denied. About 16 percent of those deferred
or denied resigned from the Agency. In 69 percent
of the deferred or denied cases, the Board used per-
formance criteria, in 14 percent habitual indebtedness,
in 11 percent intent, in 5 percent security conscious-
ness, in 4 percent inter-personal relations, in 2 per-
cent financial irresponsibility with Government funds,
2/
and it used other criteria applying to individual cases.
1/ Office of Personnel, Selection Staff, Statistical
..1 Report on Membership in CIA Career Staff as of 31
December 1956, SECRET, in OP files.
sir
awl
2/ Office of Personnel, Selection Staff, Analysis by
Grade and Selection Criteria of All Deferred or
Denied Cases as of 31 December 1956, SECRET in OP files.
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dig
issued in 1960 indicated clearly that the idea of a
The Inspector General's Survey on Career Service
mol
monl
Career Staff had been disappointing. The Survey recom-
mended that the Selection Board and the Examining Panels
be discontinued and that the selection of individuals
into the Career Staff become the responsibility of the
Heads of Career Services. The DD/S concurred in this
1/
recommendation
4. Personnel Management Advice and Services
a. Responsibilities
During the period the Office of Personnel con-
tinued to be responsible for professional and technical
advice to the Director and to operating officials on
personnel matters. It provided centralized personnel
services, as appropriate, and monitored the Agency's
2/
personnel program on behalf of the Director.? Op-
erating supervisors, on the other hand, were respon-
sible for day-to-day personnel management activities
1/ Memorandum for DCI from DD/S, 19 May 1960, Response to
Inspector General's Survey on Career Service, CONFIDENTIAL.
2/ CIA 3 June 1953, Personnel
Policy, SECRET and Office of Personnel, Survey Task
Black Book, 7 February 1955, SECRET in OP files.
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in connection with the accomplishment of their missions.
The philosophy of career service expressed by the DD/S
placed heavy emphasis upon line management and the care-
ful selection and training of supervisors and managers)"
Outside the Office of Personnel, a number of offices
continued to exercise responsibility for specific per-
sonnel management functions. The Chief, Medical Staff
provided professional medical and psychiatric services
pertinent to determinations as to physical and emotional
suitability of applicants for staff positions and staff
personnel. The Director of Security on the basis of
record checks, field investigations and polygraph tests
made final
reports of
ent to
gated.
the
security determinations and also included in
security investigations information
suitability of the individual being
The Director of Training took over the
pertin-
investi-
testing
activities of the Office of Personnel, conducted all
the Agency psychological testing programs and provided
psychological evaluations exclusive of those contained
1/ Memorandum for DCI from DD/S,19 May 1960 Response
to Inspector General's Survey on Career Service,
CONFIDENTIAL.
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within the medical program.? It also conducted the
imp Junior Officer Trainee Program including recruitment
and placement. Budgetary manpower control functions
were exercised by the Comptroller's Office. Position
evaluation and review of tables of organization func-
tions were performed by the Management Staff. The
Inspector General heard complaints of employees on a
confidential basis. All of the above officers charged
with personnel management responsibilities, except the
Inspector General, were after February 1955, under the
ami
supervision of the DD/S who endeavored to harmonize
their activities.-
2/
b. Office of Personnel
411111i
The Director of Personnel continued to be respon-
sible for representing the Agency on personnel matters
which involved the U.S. Civil Service Commission, the
Selective Service System, the Department of State, the
Department of Defense and other agencies. The Agency's
.01
1/ Ibid.
2/ CIA 3 February 1955, Organization
and Functions, Central Intelligence Agency, SECRET, in
Records Center.
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contacts with the Civil Service Commission were limited,
being confined to such things as participation in the
government-wide retirement system, observation of the
requirements of the Veterans Preference Act in adverse
actions against employees, the President's insurance
program, and similar matters in which the Agency was not
1
specifically exempted from the laws and regulations.?
The Office of Personnel conducted negotiations with
the Department of State and the Department of Defense
regarding the detail of personnel to CIA from those
agencies.
Continued stress was placed on the service aspects
of the work of the Office of Personnel. In his ten-
point program for improving CIA's personnel management,
the IG recommended in 1955:
Make "Service" the slogan of the Personnel
Office, and see that every individual in
that Office understands and acts accord-
ingly. The Personnel Office should be
advised that its mission is to do what
CIA wants done in the Personnel field
even though it does not coincide with
Civil Service Practices.2/
1// Memorandum for DCI from DP, 18 April 1955, Subject:
Ten Ways for Improving CIA's Personnel Management,
SECRET, in 0/DC1/ER, in Personnel 1955 file.
2/ Memorandum for DCI from IG, 25 February 1955, Ten
Ways for Improving CIA's Personnel Management,
SECRET, in 0/DCl/ER.
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In commenting on this recommendation, the Director of
Personnel indicated to the DCI that he agreed with the
principle and fact that the Office of Personnel existed
solely to give service to the primary mission of the
Agency. Staff members of the Office of Personnel had
been informed repeatedly that they were in a fluid
program rather than one rigidly controlled by statutes
and that effectiveness depended on reaching common
1/
understanding with operating officials.? The DD/P
commented that this point no longer seemed of over-
whelming significance, and that in many respects, part-
icularly in overseas processing, the Office of Personnel
2/
was demonstrating an outstanding sense of service.
(1) Location of Office of Personnel
During the period a year's experiment was made of
changing the location of the Office of Personnel in the
1/ Memorandum for DCI from Director of Personnel, dated 18
April 1955, Subject: Ten Ways for Improving CIA's Per-
sonnel Management; Reference: Memorandum for DCI from
IG, 25 February 1955, same subject, SECRET, in 0/DCl/ER.
2/ Memorandum for DCI from DD/P, 5 April 1955, Subject:
Memorandum from the IG, "Ten Ways for Improving CIA's
Personnel Management," dated 25 February 1955, SECRET,
in 0/DCl/ER.
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general organization of the Agency. At the beginning
of the period the Office was under the Deputy Director
for Administration along with the Office of Security,
the Comptroller's Office, and other offices concerned
with management matters. In January 1954, it was placed
in the Office of the Director where it remained for
1/
about a year.? Here it had a position which was parallel
to the Office of Training which was also in 0/DCI. This
shift of the Personnel Office to 0/DCI coincided with
the appointment of Mr. Harrison G. Reynolds as Director
of Personnel replacing Mr. George A. Meloon who had been
Acting Director of Personnel. Mr. Reynolds was a busi-
ness man who served in both World Wars and came into the
Agency in 1947 The
25X1A
Deputy Director, General Cabell, had urged the shift in
the position of the Personnel Office since he hoped to
2/
give considerable personal attention to manpower problems:
1/ 18 January 1954, SECRET, 25X1A
18 January 1954, Organiza-
tion and Functions, in Records Center.
2/ Memorandum for the Record, dated 8 October 1958, In-
terview with Col. L. J. White, DD/S, 6 October 1958,
Subject: History of DD/S, 1953-1956, SECRET, in
0/DCl/HS files.
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During 1954, the DCI and the DDCI found it diffi-
cult to give the time to the Personnel Office that they
had hoped to, so the DCI decided to shift the Office
back to the Deputy Director for Administration and thus
to concentrate responsibility for personnel matters in
the Office that dealt with related matters. This was
done by the same regulation which changed the name of
DD/A to DD/S (Deputy Director for Support) and shifted
the Office of Training and the Office of Communications
1/
as well from 0/DCI to DD/S.? The year's experiment
had not worked out as expected. The three Assistant
Directors, AD/P, AD/C, and DTR, had not been eligible
to attend the Deputies meetings when they were located
in 0/DCI. Under the new arrangement the DD/S kept them
informed regarding what went on at the Deputies meetings.
Another advantage was the ready access which DD/S had to
DCI and DDCI. As far as the regular activities of the
Office of Personnel were concerned, the shift to 0/DD/S
1/ CIA 3 February 1955, Organiza-
tion and Functions, Central Intelligence Agency,
SECRET, in Records Center.
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caused no dislocations. The DD/S established a Special
Support Assistant for Personnel to act as the link be-
1
tween OP and DD/P on personnel matters.?
The new arrangement placed the question of the re-
lationship between training and personnel management in
the hands of DD/S. Early in 1956 the Inspector General
in connection with a survey of the Junior Officer Train-
ing Program recommended the consolidation of OTR and OP
into one central Office of Personnel and Training headed
by one director with
functions. The DD/S took the position
Program was only one small part of the
of these two offices, and would not in
the merger of a number of incompatible
deputies for the two principal
that the JOT
total programs
itself justify
units and func-
tions into one central office. He opposed the organ-
izational change and recommended that steps be taken
to ensure that closest possible collaboration on this
2/
Program took place between the two of
CIA 16 February 1955, Office of
Deputy Director for Support, SECRET, in Records Center.
2/ Memorandum for DCI from DD/S, 21 March 1956, Subject:
Comments on Inspector General's Survey of the Junior
Officer Training Program, CONFIDENTIAL, in 0/DCl/ER
in DD/S 1955-1956 file.
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(2) Organization of the Office of Personnel
The main functions of the Office of Personnel re-
mained unchanged during the years 1953 through 1956,
but there were changes in the organization of the Office
and in the names of the various sub-units. The princi-
pal reorganization took place on September 1, 1953 and
in comparison with the sweeping changes made on that
1/
date other reorganizations were minor.? In the begin-
ning of 1953, the Office of Personnel provided support
service to the Agency's operating offices in the areas
of recruitment, placement, promotion, and termination
through two divisions-the Personnel Division (Overt)
and the Personnel Division (Covert). The former pro-
vided assistance to the operating officers of the DD/I
and the components of the DD/A and the assistant direc-
tors for Training and Communications and the latter
E.1 provided services to the DD/P. PDO and PDC assigned
placement officers to each of the operating offices.
For example, PDC placement officers dealt directly
imd
1/ Personnel Director Memorandum No. 66-53, 20 August
1953, Personnel Office Reorganization and Move to
New Location, SECRET, in OP.
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with their counterparts in the senior staffs and the
1
operating divisions of the Clandestine Services.
There were also separate personnel relations branches
and separate personnel records processing units for the
overt and covert parts of the Agency. The reorganiza-
tion of September 1953 put the Personnel Office on a
functional basis and did away with the separation at
divisional level between services rendered to the overt
and covert portions of the Agency. PDO and PDC were
abolished and most of their functions were transferred
to the new Placement and Utilization Division. Under
the new organization there were overt and covert branches
for assignment activities as well as for procurement
and position classification.
In his immediate office, the Assistant Director
for Personnel (renamed the Director of Personnel in 1955)
had several key officers to assist him in personnel
management planning and in the general direction of
the office. Curiously enough, his chief assistant in
1/ Materials Furnished to Historical Staff by Office
of Personnel, 30 January 1959, CONFIDENTIAL, in
HS files.
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1953 was called Personnel Director (PD). The name of
the position was changed to Deputy Assistant Director
for Personnel (DAD/P) in 1954 and to Deputy Director
1/
of Personnel (DD/Pers) in 1955.? As a carry over from
the previous administration, Mr. George A. Meloon, pro-
fessional personnel officer, held this position until
September 1955, when he was replaced by 25X1A
professional finance officer, who served through 25X1A
2/
the remainder of the period and beyond.? In 1954 the
position of Executive Officer (EO) was established.
(a) Planning Staff
During the period, a planning staff, under various
names, was responsible for planning and directing the
development and coordination of recommendations con-
cerning Agency personnel policy, Career Service program
objectives, personnel standards and procedures, in-
cluding the development of appropriate regulatory issu-
ances. This staff was divided in the beginning of the
period into a Research and Planning Staff and a Career
Development Staff. The latter staff was concerned
1/ OP, Survey Task Force Black Book, 13 December 1954, SECRET,
in OP and OP Memorandum No. 20-190-17, 15 June 1955,
Assignments of Personnel, SECRET, in OP.
2/ Ibid.
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primarily with giving staff support to the Career Ser-
1/
vice Board and its task forces.? The former staff con-
ducted studies of personnel Office objectives, organ-
ization, staffing, and operating procedures and prepared
statistical reports on personnel developments. In order
to bring similar functions together, these two staffs
were combined into a single staff on August 1, 1953,
which was first called the Research, Planning
Development Staff and later called the Plans,
2/
and Development Staff.
and career
Research
who had
been Chief of the Career Development Staff was placed
in charge of the combined staffs. In June 1954 he was
replaced by and the name of the
3/
staff was changed to Planning and Analysis Staff.? In
25X1A
25X1A
July 1954 the planning functions were again divided and 25X1A
was placed in charge of the offshoot which
was called the Career Service Staff whose chief function
1/ See above, p. 152.
2/ PD Memorandum No. 56-53, Personnel and Organizational
Changes, 30 July 1953,- RESTRICTED, and PD Memorandum No.
66-53, Personnel Office Reorganization and Move to the
New Location, 20 August 1953,- SECRET, in OP files.
3/ OP Memorandum No. 1-170-1, 10 June 1954, Functional
Organization of the Office of Personnel, SECRET, in
OP files.
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was to furnish staff support to the CIA Selection Board
1/
in the establishment of the Career Staff. By June
1955, the Career Staff activities had settled down and
the planning staffs were once again combined and this
time they were placed under as Deputy
Director of Personnel for Planning and Development.
Four Staff elements were put under his jurisdiction:
Plans, Mobilization, Selection, and Development.
Personnel mobilization planning was a new function
which was concerned with assisting the Clandestine
Services Planning Board in preparing personnel support
2/
annexes to cold war operations plans.? The Develop-
ment Staff was also new and it was made responsible
for monitoring career planning in the Agency and for
1/ OP, Survey Task Force Black Book, 13 December 1954,
SECRET, in OP files. Establishment of this Staff
was requested 9 July 1954, the need for it having
become apparent in April 1954 when responsibilities
for planning and activating the Career Staff for
providing Secretariat support to the several Agency-
wide Boards and organs concerned with career ser-
vice were separated from the former Plans, Re-
search and Development Staff and assigned to the
Special Assistant for Career Service.
2/ Ibid.
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administering the Junior and Senior Career Development
1/
programs.? The Selection Staff was a continuation of
the Career Service Staff. Residual planning functions
were performed by the Plans Staff. Continuity in staff
support for career planning was furnished throughout
the period by
ho was connected in one 25X1A
capacity or another with the various career planning
bodies.
(b) Personnel Records
The reorganization of September 1, 1953 concen-
trated in the new Processing and Records Division re-
sponsibility for processing official personnel actions,
for maintaining consolidated official records of Agency
personnel activities including personnel actions, cor-
respondence, applicant and employee files, and for op-
erating a central processing service for personnel
2/
performing official travel.
rag
1/ This involved the administering of 40 senior development
positions which could be used for training purposes.
These positions were transfered from OTR to OP in
lag
December 1954 and they were cancelled in fall of
1956. The Junior Career Development program was
for promising young persons already on the staff on
contrast to Junior Officer Trainees who were recruited
from outside.
2/ See Office of Personnel Memorandum No. 1-170-1, 10
June 1954, Functional Organization of the Office of
Personnel, SECRET, in OP.
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Prior to this the processing and records activities
had been carried on in three different components of OP.
In June 1955, the name of the Division was changed to
Records and Services Division and it acquired part of
the employee services functions from the Former Employee
1/
Services Division.
The workload of the Division was impressive dur-
ing the period. The handling of the personnel records
presented space, filing, and management problems. In
1957 the Official Personnel Folder File alone occupied
some 823 cubic feet of file space (the equivalent of
2/
some 100 four-drawer filing cases.)? Every war the
Division conducted about 30,000 briefings, processed
25X9 some personnel appointment actions, handled
some 5,000 promotion actions, processed some 30,000
other personnel actions, filed some 150,000 pieces of
3/
material, and wrote and sent some 44,000 letters.-
1/ Office of Personnel Memorandum No. 20-190-17, 15 June
1955, Assignments of Personnel, SECRET, in OP files.
2/ Office of Personnel, Records Control Schedule No. 40-57,
SECRET, in Records Center.
3/ Comptroller, Estimates for Fiscal Years 1956, 1957 and
1958, Bureau of the Budget Presentations, SECRET, in
Records Center Jobs 58-436, 58-437, and 59-417.
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The guarding of the use of personnel files was a
matter of continuing concern during the period. In
1955 the Inspector General recommended:
Place ironclad rules governing the use of
personnel files. These should be avail-
able to only a limited number of senior
officials in the Agency; and allowed out
of the Personnel Office for only a limited
time (48 hours). Further, the Personnel
Office should devote a major effort to
developing one master personnel file on
each employee in which all pertinent in-
formation is placed. At present any em-
ployee who wishes to tamper with his per-
sonnel folder can do so with ease.1/
A number of steps ?were taken to carry out these
recommendations during the next few years. The Direc-
tor of Personnel first pointed out that "the 48-hour
rule would not be susceptible to universal application
without observing an inflexibility which they had long
2/
sought to remove wherever possible."? It was the con-
sensus that five working days constituted a reasonable
time for such files to be in the custody of designated
individuals. The existing rule required that the
Memorandum for DCI from IG, 25 February 1955, Ten
Ways for Improving CIA's Personnel Management,
SECRET, in 0/DCl/ER.
2/ Memorandum for DCI from DP, 18 April 1955, same
subject: SECRET, in 0/DCl/ER.
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individuals entitled to withdraw personnel files from
the Office of Personnel be designated in writing by
1/
individual Agency components.? In 1955 the Office
proposed that stricter rules be applied to access to
official personnel files and together with the Manage-
ment Staff it developed a pre-and-post-charge check
system which helped determine as nearly as possible the
2/
person responsible for any tampering.? As for master
personnel files, work continued on converting all per-
sonnel files to a standard system, on placing papers
in proper order and on searching out all papers which
3/
should be a matter of official record.
During the period efforts were continued to im-
prove the procedures for processing personnel actions.
Joint study with the Management Staff resulted in a
plan for making greater use of mechanical equipment in
1/ CIA Regulation No 2 March 1954, Personnel
Records and Reports, SECRET, in Records Center.
2/ Memorandum for DCI from DP, 11 January 1956, Final
Report on Ten Ways for Improving CIA's Personnel
Management, SECRET, in OP files.
3/ Memorandum for DCI from DP, 18 April 1955, loc. cit.
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this process. Programmatic Flexowriters were adopted
to cut tapes for automatic reproduction of standard
information on requests for personnel actions and noti-
fications of personnel actions, with the use of a con-
verter device, to provide for automatic punching of
this information into standard IBM cards used for per-
1/
sonnel statistical purposes.
(c) Staffing the Office of Personnel
While the Office of Personnel was not bound by
the Civil Service Commission in recruiting its own
staff, in practice it tended to recruit personnel ex-
perts who had had experience under Civil Service rules
and who were prone to think in terms of those rules.
One of the staffing problems of the Office of Personnel
was to broaden the background of its own employees.
The Inspector General recommended in 1955 that
the principle of rotation be applied vigorously to the
staff of the Office of Personnel:
1/ Comptroller, Estimate of Requirements Fiscal Year
1958, dated 30 September 1956, Bureau of the Budget
Presentation , SECRET, in Records Center Job 59-417.
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Get fresh blood into the Personnel Office in
the form of experienced and respected officers
from other parts of the Agency, particularly
DD/P. To do this give DD/S and D/Personnel
the right to select ten GS-13 to GS-15's from
other offices and place them in key Office of
Personnel jobs on a career rotation basis.
Simultaneously, place the Office of Personnel
people elsewhere in the Agency where they will
obtain broadening experience.1/
The Director of Personnel agreed that cross-
fertilization was a must in personnel management as well
as in any comparable business. He stated that the Office
of Personnel had added to its staff experienced people
from DD/P headquarters and from overseas stations.V
During the period slow but steady progress was made in
implementing the policy for interchanging personnel be-
tween the Office of Personnel and operating components.-
3/
One of the problems which the Office of Personnel faced
in trying to rotate its key people was the lack of high-
level personnel management positions overseas.
1/ Memorandum for DCI from IG, dated 25 February 1955,
Ten Ways for Improving CIA's Personnel Management,
SECRET, in 0/DCl/ER.
2/ Memorandum for DCI from DP, dated 18 April 1955, same
subject, SECRET, in 0/DCl/ER.
3/ Office of Personnel, Materials Furnished HS 21 January
1960, CONFIDENTIAL, in 0/DCl/HS files.
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In 1953, the Inspector General called attention
to the size of the staff of the Personnel Office in re-
lation to the total number of staff employees. He
made the following comment:
Using the figure of staff employees,
this represented one person in the Personnel
Office for every"' staff employees . . .
This represents an extremely high proportion
when the Independent Offices Appropriations
Act in recent years has stipulated that there
be one person in Personnel for every em-
ployees.1/
The Director of Personnel pointed out that the
Agency required personnel specialists to perform func-
tions which were not required in all Federal agencies
and which would be excluded by the Bureau of the Budget
2/
in computing ratios.? For example, contracting, special
recruitment, testing and central processing functions
and overseas personnel administration would not be
required in most other agencies. The figure
1/ Memorandum for DCI from PD, 15 January 1954, Inspec-
tor General's Report on the Personnel Office, SECRET,
in Records Center Job 57-596, cites the IG's Survey
of the Personnel Office, dated 30 November 1953. The
25X9 IG used the figure 'or the Personnel Office. This
included civilian and military personnel on duty. The
25X9 size of the Personnel Office fluctuated during the
period from As of 31 January 1957,
there were on duty civilians and 47 military personnel.
25X9
25X9
25X9
25X9
25X9
2/ Ibid.
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did not include contract personnel, special projects
personnel, military personnel, and employees of propri-
etary organizations. Also, it was generally recognized
that more personnel specialists were required in a new
and growing organization in which basic personnel policy
was being determined than would be needed in an estab-
lished organization operating under the authority and
guidance of the Civil Service Commission. In the re-
port for Fiscal Year 1954, prepared according to
instructions from the Bureau of the Budget, the Agency's
1/
ratio was 1 to or practically the standard ratio.
5. CIA Recruitment Policies and Practices
At the beginning of the period the Agency had to
change over from an expansion-geared recruitment program
to one based almost exclusively on replacement of
attrition. Because of high turnover rates, the re-
cruitment of technical communications and clerical per-
sonnel continued at critical level both as to volume
and urgency.
1/ Ibid.
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CIA continued to assert that it had to do its
own recruiting because of the security nature of its
were responsible for referring qualified candidates
for professional, administrative, clerical vacancies.
The psychologists operated mostly in Headquarters but
they made arrangements for field examinations. The
security investigators included personnel security
officers who searched and analyzed records in Head-
25:::.:::1 A
Responsibility for recruitment activities con-
tinued to be divided. The Personnel Procurement Division
1/ Office of Comptroller, Draft of Opening Remarks
of the Director to the House Appropriations
Committee, 15 February 1956, SECRET, in Con-
gressional Budget Material Fiscal Year 1957,
in Records Center Job 58-437.
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of the Office of Personnel was responsible for providing
a program of overt and covert personnel procurement
which included the development of recruitment sources
and the procurement of qualified personnel to meet the
1/
Agency's staffing requirements.? The Office of Train-
ing was responsible for all testing programs, including
tests for evaluation of professional, administrative,
and clerical prospects. It also worked out a joint
program with the Office of Personnel for recruiting
Junior Officer Trainees. The Medical Staff was respon-
sible for determining the physical and mental fitness
of applicants. All applicants had to pass a rigid phy-
sical examination. Psychiatric examinations were given
only in special cases where preliminary screening de-
vices had identified neurotic tendencies. The function
of the Medical Staff was to screen out persons who
would not adjust to Agency needs. The Office of Sec-
urity conducted the polygraph interviews and the field
investigations in order to determine the applicant's
1/ For a short time, about three months, the Personnel
Division (Covert) had a few contract recruiters.
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suitability for employment from the standpoint of
1/
security.? Finally, the operating offices throughout
the Agency continued to engage in recruiting activities
of their own. In many cases, the initiative for finding
candidates with the needed qualifications was taken by
the Official who had the vacancy to fill and in all
cases the final decision whether to go ahead with the
recruitment process in a given case lay with that
2/
official.
In July 1953 the DD/A took the initiative in bring-
ing together three of the support offices concerned
with Agency recruitment. He directed the Personnel,
the Chief of the Medical Staff and the Director of
Security to form a panel which would pool and coordi-
nate marginal administrative information which each
might develop in processing the case of any applicant
1/ CIA 13 December 1954, Appoint- 25X1A
ments, Section I, 3. Security and Medical Approval,
CONFIDENTIAL.
2/ A critical problem, according to DD/P, was that each
recruitment had to be tied to a specific job. T/O's
were so out of date that it was sheer accident if the
man recruited against a particular slot filled the need
that was greatest. Memorandum for DCI from DD/P, 5
April 1955, Subject: Memorandum from the IG, "Ten Ways
for Improving CIA's Personnel Management," SECRET, in
0/DCl/ER.
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for employment which by itself would be insufficient
to result in a rejection under the employment standards
for which each office had specific responsibility. By
marginal administrative information was meant that which
would raise a question as to the applicant's harmonious
assimilation into the daily working life of the Agency.
Bits of information regarding unpleasing habits or
handicaps might furnish insufficient grounds for one
office to base a rejection, but the combined information
from the three offices might furnish sufficient grounds
for such action. A panel of officials designated by
=IN the three offices met once a week to discuss as much
information as possible regarding marginal cases as
..?
each office could furnish consistently with profession-
al medical and security operating standards. All in-
formation furnished was weighed and recommendations
rod were made to the Personnel Office to hire or reject
the applicant. The Director of Personnel had the final
win word in such cases, subject to an appeal which a re-
MOO
1/
questing component might make to the DD/S or the IG.
1/ Office of Security, Office of Security History (1953-
1956), 16 March 1960, SECRET, in 0/DCl/HS files.
During Fiscal Year 1954, there were 171 panel cases,
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The recruitment task of the Agency was revealed by
the figures on applicants interviewed, applicants tested,
security investigations initiated, and new employees
1/
entering on duty.? The Office of Personnel interviewed
25X9 between applicants each year. Data
on number of interviews of applicants conducted by op-
erating supervisors of other organizational components
were not furnished to the Office of Personnel. The num-
ber of applicants tested each year dropped from
25X9 in 1953 to1111111in 1955 and then rose slightly
in 1956. The number of security investigations initiat-
25X9 ed varied from in 1956 and the num-
ber of new employees entering on duty fluctuated down-
ward from the peak of in 1953. In 1954 the number
of new employees entering on duty was only but in
1955 and 1956 the number was within two or three hundred
of 1953 high. During the period the number of inter-
views of applicants was from six to ten times the number
entering on duty in a given year.
during Fiscal Year 1955, 282 such cases, and during
Fiscal Year 1956, 396 such cases. Rejection was
recommended in slightly over one half of the cases.
1/ Office of Personnel, Tables 8 and 5.
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An analysis of the reasons for applicant cancella-
tions is useful in trying to understand why so many
applicants had to be screened in order to secure the
number entering on duty each year. The most numerous
of the reasons given each year for voluntary cancella-
1/
tions was "accepted another position."? Many of these
applicants became impatient while waiting to hear from
their security investigation by the Agency. The two
reasons given most frequently for involuntary cancella-
tion of applications were security disapproval and
"office no longer interested."
a. Assessment Services
A tradition of long-standing, going back to the
days of the Office of Strategic Services, supported
the use of psychological tests and various evaluative
techniques by CIA as aids to those responsible for
personnel management, especially those responsible for
2/
recruiting.? To be sure assessment was used not only
1/ Office of Personnel, Table 9.
2/ OSS Assessment Staff, Assessment of Men: The Selec-
tion of Personnel for the Office of Strategic Services,
New York, Rinehart and Co., 1948.
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to help supervisors and Career Service Boards in their
recruitment but also in assignment, career planning,
promotion, rotation, training, separation, and in other
problems. While during the period the Office of Train-
ing took over the testing programs from other parts of
1/
the Agency,? the collecting of administrative and per-
sonality information and the conducting of polygraph
interviews remained with the Office of Security, the
conducting of psychiatric interviews remained with the
Medical Staff, and the recruitment interview remained
with the Office of Personnel. All of these services
were supplemental to the work of the supervisor who
had to decide whom he wanted to hire, and how he should
fill out fitness reports. While the amount of infor-
mation available on any single individual was consider-
able, efforts to bring all of this information together
in a form that would be most useful to those responsible
for personnel actions were not successful during the
2/
period.
1/ OTR Notice No. 28-54, 1 December 1954, Reorganization of
the Office of Training, SECRET, in OTR files, refers to
Testing Services Branch of Assessment and Evaluation Staff,
recently transferred from the Office of Personnel.
2/ Memorandum for DCI from IG, 20 April 1954, Survey of the
Office of Training, SECRET, p. 25, in OTR files.
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The purpose of the intensive assessment was to
help determine the suitability of individuals for part-
icular types of positions, especially those of a critical
or sensitive nature. In 1953 intensive assessment in-
volved two full days for the individual assessed, during
which the individual took standard psychological written
tests, projective tests, and situation tests, e.g., sem-
inars and unrehearsed skits. During the Fiscal Year 1953
1/
some 400 of these intensive assessments were given.?
DD/P and OTR were generally satisfied with the quality
2/
of the assessment product.
During the next four years the Assessment and Eval-
uation Staff of OTR developed a less time consuming
assessment in addition to the intensive assessment. This
was called the standard assessment and it involved the in-
terpretation of test materials in the light of informa-
tion furnished by supervisors. If the standard assess-
ment did not answer all the questions, the supervisor
1/ OTR Survey of the Office of Training, August 1953,
Activities, SECRET, in Records Center Job 56-403.
2/ Memorandum for DCI from IG, 20 April 1954, loc. cit.,
p. 21.
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might then ask for an intensive assessment which followed
the pattern described above. During the Fiscal Year 1956
the total number of individuals assessed by standard or
1/
by intensive methods was over 600.? The A & E Staff re-
ceived referrals for assessments from all offices of the
Agency. Intensive assessment was routine for Junior
Officer Trainees.
At the beginning of 1953, the testing of professional
2/
applicants was a rudimentary sort.? During the next
four years the Assessment and Evaluation Staff developed
a testing program aimed at producing information on a
variety of intellectual skills, aptitudes, interests, and
attitudes. At the end of the period, three professional
testing batteries were in use: the Professional Appli-
cant Test Battery, (PATB), the Professional Employee Test
Battery, (PETB), and the Foreign Language Aptitude Test
Battery, (FLATB.) A majority of professional applicants,
including prospective Junior Officer Trainees, took the
PATB which contained a rough measure of aptitude for
1/ CIA Estimate of Requirements Fiscal Year 1958, 30 Septem-
ber 1956, Bureau of the Budget Presentation, SECRET, p.
D-10-7, in Records Center Job 59-417.
2/ Memorandum for the Record, 21 November 1958, Interview
with Chief, Assessment & Evalua-
tion Staff, OTR, SECRET, in HS files.
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learning a foreign language. The FLATB was given when a
more precise measure was required by officials who were
considering an individual for language training. The
PETB was given to all professional employees. Those who
were not tested as applicants (PATB) took the entire battery.
Those who had received PATB within two years took only
those tests which they had not taken previously. The PETB
served as prerequisite for some OTR courses and it was
also part of the assessment program. During the Fiscal
Year 1953 some 800 individuals were given professional
tests and during the Fiscal Year 1954 over twice that
1/
number
During the period the methods of giving tests were
improved The grading of tests was mechanized and the
scores were put on IBM cards. This enabled the A & E
Staff to standardize test results, to produce recrods
quickly, and facilitated a program of evaluation of test-
ing procedures.
The A & E Staff continued research during the period
on the validity of test results. It found that the PETB
1/ OTR Survey of the Office of Training, August 1953,
Activities, SECRET, in Records Center Job 56-403,
and CIA Estimate of Requirements Fiscal Year 1956,
15 September 1954, SECRET, in Records Center Job
58-436.
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had predictive value for performance in the Intelligence
Orientation Course and that FLATB had predictive value on
1/
how well an individual would do in language training.
The Staff tried to develop tests that could be used to
predict performance in the operation course but it found
validation much more difficult in this field since the ob-
jectives of the operations courses were intangible and
there were no standards to measure performance in the field.
b. Recruitment of Junior Officer Trainees (JOT's)
The origins of the Junior Officer Training Program
(JOT) have been described in History of the Smith per-
2/
iod.? The program was initiated in 1950 by General
Smith who recognized that the Agency needed a planned,
systematic method to identify, select, and develop career
intelligence officers of the highest calibre. He was
convinced that a sound intelligence agency must be built
1/ Office of Training Bulletin, Number 44, November-
December 1958, SECRET, pp. 10-11.
2/ Historical Staff, 0/DCI, Organizational History of
Central Intelligence Agency, 1950-1953, 2
Chap. X, pp. 91-98, in HS files.
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around key personnel who regarded intelligence as
a career. Distinguished professors, outstanding
military men, and leading experts would serve for
brief periods but they soon went back to their fund-
amental jobs. Part of this career management program
was the effort to select exceptionally qualified, highly
motivated young people some of whom might become the
ones to hold the key positions later on. In 1956,
looking back on the JOT Program, the Acting Director
of Training stated the Program had three steps: (a)
identification and selection of young people of high
potential; (b) appropriate formal Agency training; and
(c) "tailored" on-the-job training, calculated to de-
velop their potential and interest in intelligence
1/
work.
Of the three steps listed above the second clearly
belonged to the Office of Training. The first and third
steps required close cooperation between the Office of
1/ Memorandum for DDCI, from Acting D/TR, 19 March 1956,
Subject; The Concept of the Junior Officer Training
Program, CONFIDENTIAL in 0/DCl/ER "Training" file.
25X1A CIA 15 August 1956, SECRET,
"Training, JOT Program," SECRET, in Records Center.
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Training and the Office of Personnel. In his Survey of
the Office of Training in 1954, the IG stated that there
was certain questioning as to whether the JOT Program was
properly placed in OTR rather than the Office of Per-
1/
sonnel.? The Director of Training had no doubts on
this question. He contended that the administration
of the Program belonged under OTR where all of the re-
sources of this specialized Office could be brought to
bear in the development of each individual's talents,
that OTR should have full control of an responsibility
for this training program since the JOT'S were hired to
be trained and accepted employment with this understand-
ing, and that there was no evidence that the product of
the Program would be improved by a change in its admin-
2/
istrative control.? The Junior Officer Training Divi-
sion was left in OTR during the period under discussion
3/
although the IG raised the question again in 1956.-
1/ Memorandum for DCI from Inspector General, Survey of
the Office of Training, 20 April 1954, SECRET, in
OTR files.
2/ Memorandum for DDCI from D/TR, 15 January 1954, Subject:
Administration of the Junior Officer Training Division,
SECRET, in HS files.
3/ Memorandum for DCI from DD/S, 21 March 1956, Subject:
Comments on Inspector General's Survey of JOT Program,
CONFIDENTIAL.
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acceptable. The Office of Personnel had no general re-
quirement of this sort for all professional applicants.
In any case, JOT candidates had to have college degrees.
2/
Over one-half of those selected had graduate degrees.
In contrast to some other recruitment programs of the
Agency, ?the candidates did not have to have professional
or highly specialized degrees. They could not have for-
eign relatives and since 1956 those with foreign-born
3/
parents were not eligible without a special waiver.
They had to be medically approved for full duty and with-
in the age limits of 21 and 35. This meant that they
had to have eligibility for S. I. clearance and overseas
employment. Additional qualities were also sought, such
1/ Robert D. Murphy, "Academic Training for the Foreign
Service," Department of State Bulletin, Nov. 3 1958
XXXIX, pp. 690-'692.
2/ Women candidates were required to have M.A. degrees.
ami 3/ See UP stories of 15 March and 20 March 1956 regard-
25X1A ing case of JOT
dig
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as: initial motivation for service, interest in and
ability to get along with people, emotional stability
as shown by psychiatric examination, personal and in-
tellectual flexibility, qualities of leadership of one
kind or another, objectivity, resiliency, ability to
tolerate bureaucratic annoyances, vigor and drive, de-
sire for hard work, the capacity to develop enthusiasm
for this work and hence for career service, and other
1/
attributes of a first-rate individual.? It was recog-
nized that no individual would have all qualities to a
marked degree, but effort was made to determine highly
developed or disqualifying characteristics of each can-
didate.
The recruiting of JOT's differed from that of FSO's
in that the Agency could not advertise its recruiting
program generally as did the Department of State. It
was also felt that the Agency would meet its needs bet-
ter by a program of spotting likely candidates than by
1/ CIA "Training," 15 August 1956, 25X1A
SECRET, in Records Center, and Office of Training,
Survey of the Office of Training, August 1953, Part II,
Activities, Tab D, Junior Officer Training Program,
SECRET, in Records Center, Job 56-403.
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a system which left the initiative to applicants. The
identification of likely prospects was accomplished by
professional recruiters of the Office of Personnel who
by university consultants who were situated in some 43
key educational institutions, and by staff employees
who had contacts with colleges and universities. The
Agency university consultants, selected jointly by OTR
and the Office of Personnel, had to be fully cleared
1/
and they operated under strict instructions.? A small
number of persons walked into the Personnel Office and
asked for applications. An examination of the colleges
from which JOT's were selected shows that over 72 dif-
ferent colleges from all parts of the United States were
represented.
1/ See "A Brief Summation of the Factors and Events
Leading to the Development of the Consultant Pro-,
gram Generally Referred to as, 'University Consul-
tant Contacts," in Memorandum to DDCI from D/TR,
dig 15 January 1954, Subject: Administration of the
Junior Officer Training Division, SECRET, in HS
files.
dis 2/ Office of Training, 5th Anniversary, SECRET. An
examination of the map shows that some 27 percent
came from Harvard, Princeton and Yale. There were
more recruiters in the Northeast. An even higher
proportion of the some two dozen women came from
Vassar, Smith and Bryn Mawr.
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In 1953 the selection procedure normally included
some seven screenings which did not differ markedly from
the recruitment procedures used for other professional
personnel. The field recruiter made the first screening
when he identified a subject for the program. An in-
spection of the files by the Personnel Procurement Divi-
sion of the Office of Personnel constituted the second
screening. If the candidate passed this test, his files
were next examined by an OTR Placement Officer. The
fourth step was taken by the Chief, Junior Officer Train-
ing Division, who decided whether or not the candidate
would be interviewed and tested either in Washington or
the field. The interview by the OTR Placement Officer
and the psychological tests by the Assessment and Eval-
uation Staff constituted the fifth screening which was
more thorough than the corresponding testing of other
applicants. A candidate whose test results and inter-
view reports were favorable was then interviewed by the
Chief, Junior Officer Training Division. If his decision
was favorable, the Director of Training then made the
1/
final decision by signing off on the file.?
1/ Survey of Office of Training, August 1953, Part II, Activi-
ties of Office of Training, SECRET, in Records Center Job
56-403.
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During the first four years of the Dulles adminis-
tration of the Agency the procedures for recruiting JOT's
became more flexible and at the same time more refined.
The psychological tests no longer had to wait for the
fifth screening in Washington but arrangements were made
to administer them at earlier steps in field locations
convenient to candidates. This was done by setting uP
a field Career Development Program which used the well
25X1A known commercial to adminis-
1/
ter tests which had been developed by A & E Staff.
After the JOTP staff was expanded, additional screenings
2/
were made by the new Training Officers.? Promising
candidates who passed the psychological tests were
1/ For two years the National Security Agency was used
for this field testing but later the JOTP returned
to the Federal Career Development Program. A can-
didate could be tested within 2 weeks.
2/ In 1954 a JOTD Panel comprised of Chief/JOTD, Place-
ment Officer/PUD, and Personnel Officer/OTR reviewed
cases. See "Recruitment, Selection and Processing
of junior Officer Trainee Candidates," Tab A, in
Memorandum for DDCI from D/TR, 15 January 1954, Sub-
ject: Administration of the Junior Officer Training
Division, SECRET, in HS files.
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brought to Washington for a pre-employment medical ex-
amination, including a psychiatric examination to deter-
mine emotional stability, and for further interviewing
by the JOTP staff. At this time the Chief of JOTP ex-
plained fully to the candidate what the Agency expected
of him if he joined the Program. Another change which
increased the flexibility of the Program was the initia-
tion of security clearance before some of the other steps
had been completed. If the screenings were favorable,
the request for clearance would be confirmed. If unfav-
orable, the request for clearance would be cancelled.
In the fall of 1956 responsibility for all civilian
personnel support for the JOTP was concentrated under
one Personnel Officer working directly with the Program
1/
administrators.? The new position combined the Place-
ment Officer function previously administered centrally
in OP and the Personnel Officer function of OTR. In
addition, several other responsibilities previously car-
ried out by various Divisions in OP were taken over
(Though administration of the tasks was not relocated in
1/ Information furnished to HS by OP, 30 January 1959,
CONFIDENTIAL.
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all cases.) The JOTP Personnel Officer soon established
contacts with the Medical Staff, the Office of Security,
Cover Division, all elements of OP, and those elements
of OTR providing a service function such as A & E Staff
and OTR Processing Section. This new arrangement proved
to be a much improved method for expediting the procedu-
ral aspects of the Program.
The JOT'S were broken down into two main groups:
one which was not subject to the draft (veterans, 4-F's,
and women), and the other which was draft-eligible.
General Smith worked out an arrangement in 1951 with
General Marshall, then Secretary of Defense, whereby
the draft-eligible employees of the Agency would be
taken into the various services, given basic training
and OCS training and then returned to the Agency for
training in intelligence as officers on detail for the
1/
remainder of their active duty commitment.? He be-
lieved that the discipline and character necessary to
1/ Agreement signed 23 June 1951 and agreements by
individual services at later dates. For procedures,
see Survey of Office of Training, 1953, op. cit.,
and Memorandum for DCI from D/TR, 15 January 1954,
Administration of JOTD, SECRET, in OTR files.
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make effective intelligence officers could not be de-
rived from the normal academic background but could be
developed only in military service. Originally candi-
dates upon the successful completion of OCS were assign-
ed directly to the Agency. The Director of Training
felt that a tour of duty with troops was also essential
so a minimum of six months of troop duty or one year
of ship duty was incorporated into the program. In
April 1954, the arrangement with the Navy was terminated
1/
because of differences over financial details.
The Officer Candidate School Program arranged for
draft-eligible JOT's presented some problems which were
2/
examined from time to time by the Inspector General.
In 1953 the Program gained the reputation in some quar-
ters for being a "cushy" substitute for the draft since
a few recruiters had oversold it. This situation was
1/ The Navy wanted to be reimbursed for training ex-
penses. This made the expense of the military train-
ing too great.
2/ Memorandum for DCI from Inspector General, Survey
of the Office of Training, 20 April 1954, SECRET,
and Inspector General's Survey of thejunior Officer
Training Program, 2 February 1956.
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improved by the issuance of instructions to recruiters
1/
and by the requirement of longer military service.
The attrition rate among the JOTts in the military pro-
gram was higher than among male JOT's in the regular
program. As of December 31, 1957, only 22 men out of
the total of 201 in the regular program had left while
connected with the program, while 51 out of 143 in the
military program had left. In other words, the attri-
tion rate was three times higher in the military pro-
gram than in the regular program. Among the reasons
given for this higher turn-over were that some candidates
appeared to have misrepresented their intentions about
career service either consciously or unconsciously and
that some candidates were attracted by other opportun-
ities during the eighteen months that they were away
2/
from the Agency.? On February 2, 1956, the IG recommended
that the Agency sponsorship of military service of draft-
1/ Memorandum for IG via D/TR from C/JOTD/OTR, 20 Novem-
ber 1953, on Discussion of the OCS/JOT Program, CON-
FIDENTIAL, in Records Center.
2/ Ibid.
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eligible JOT candidates be terminated but the DD/S did
not concur in this recommendation and the DCI supported
1/
the DD/S position.
The Program was designed to solve some of the re-
cruitment problems of the Agency. More than one half
of the professional employees recruited during the per-
2/
iod, however, were obtained outside the JOT Program.
Supervisors did not want to give up the power they had
to recruit their own employees and the JOT Program was
not designed to select persons with advanced training
in the sciences or with professional training in law,
um.
accounting, engineering, or medicine. Only occasionally
mid
was a JOT designated for the DD/S area. The Program
did not avoid the problem of the Professional place of
women in the intelligence program. The attrition rate
of women JOT's, however, was twice that for regular
1/ Memorandum for DCI from DD/S, 21 March 1956, Sub-
ject: Comments on Inspector General's Survey of
the Junior Officer Training Program, CONFIDENTIAL,
in 0/DCl/ER, "Training" file.
2/ Office of Personnel, Table 8, Agency Recruitment
of Personnel to Fill Staff Positions, 1953-1956,
SECRET, furnished 19 January 1959 to HS staff.
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male accessions.? The Program also did not shrink from
the problem of the professional place of the non-Caucasian
but it found considerable difficulty in locating eligible
Negro JOT candidates.g/ During the four years under dis-
cussion the net accessions made through the JOT Program
were around one hundred and forty.' In spite of some
1/ As of December 31, 1957, 8 of the 46 women accessions
to the Program had resigned. This was twice the rate
for regular male accessions. Women JOT's married and
gave up their professional careers. The attrition
rate was probably not higher than for other women in
?Ni the Agency. See Office of Personnel, Table 6, Annual
Separation Rates of Staff Personnel, 1953-1956, SECRET,
furnished to HS 19 January 1959.
2/ In his 1956 Survey the IG recommended that D/TR
place increased emphasis on the selection and re-
cruitment of non-Caucasian trainees for inclusion
in the Program. See Op. cit. It was not until
after 1956 that qualified non-Caucasian candidates
were found. C/JOTP indicated that problems were
oar encountered in trying to locate eligible Negro can-
didates. The Security Office found that many Negroes
had signed Communist-front organization petitions in
college, that the parents of some Negro college grad-
uates were security risks, that Negro candidates did
not stand up well in psychiatric examinations, and
that some supervisors did not want to hire Negroes.
25X1A Memorandum for the Record, 14 January 1959, Conver-
sation with SECRET, in HS files.
3/ Office of Personnel, Table 10, JOT Recruitment,
Accessions, and Separations, 1953-1956, SECRET,
furnished HS 19 January 1959 and Memorandum for the
Record Interview of 26 January 1959 with 25X1A
25X1A SECRET, in HS files do not agree completely.
The total accessions for the period were around 200.
OP had 72 and JOTP 62 separations.
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some criticisms of the military side of the program,
the plan as a whole was deemed a successful recruiting
25X9
arrangement. The IG recommended in 1956 that the ceiling
be increased from IMIllpositions and the DD/P re-
quested that the number of JOT's assigned to his area be
trebled. These increases were not made but in 1956 the
DD/S instructed the D/TR and D/P to recruit JOT's with-
1/
out regard to ceiling.
c. Recruiting Clerical Employees
Because of security considerations, CIA claimed
that it had to do its own recruiting of clerical workers.
This meant that the Agency had to compete with the Civil
Service Commission which had general government-wide
responsibilities in this field. The Office of Personnel
had a special Clerical Recruitment Branch which was
responsible for recruiting personnel to meet the Agency
2/
clerical needs.? This Branch faced the general con-
dition of continued scarcity of fully-qualified clerical
1/ Memorandum for DCI from DD/S, 21 March 1956, loc. cit.
2/ Office of Personnel Memorandum No. 1-170-1, 10 June
1954, Functional Organization of the Office of Per-
sonnel, SECRET, in OP files.
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candidates who were interested in employment in the
Washington area. In addition, it faced problems which
were peculiar to the Agency. Unlike other agencies,
CIA could not hire and place candidates immediately
who had demonstrated their clerical skills. Security
clearance took at least three months and the practice
was to hire candidates and place them during the wait-
ing period in the Interim Assignment Branch where they
could brush up their clerical skills and work on such
unclassified assignments as were available. This meant
that it took time before new clerical workers could be
integrated into the work of the Agency. Among prospects,
the Interim Assignment Branch did not acquire a good
1/
reputation.? The Clerical Recruitment Branch was some-
times so pressed to get candidates that it had to lower
its standards for clerical skills required.
The clerical recruitment problem in the Agency con-
tinued to be a chronic one because of the high turnover
1/ Report of the Panel on Career Service for Women to
the CIA Career Service Board, Career Employment of
Women in the Central Intelligence Agency, November
1953, SECRET, stated in Tab E: "Misconceptions, wild
rumors and a feeling of being a nameless cipher de-
velop in the Interim Assignment Branch, despite the
best efforts of those in charge . . . "
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among this class of employees. The annual separation
rate for the lower grades, GS-01-06, which were mostly
filled by women clerical employees, was 27.0 for 1953
1/
and 21.3 for 1956.? In each case the rate was from
two to three times higher than the rate for the upper
grade groups.
In a general survey which he made of the Office of
Personnel in 1953, the Inspector General expressed a
concern about the high separation rate of clerical em-
ployees. He made the following suggestion regarding
this situation:
It is advanced that there would be a lower
rate of turnover of clerical employees if the
acquiring office was permitted to interview
the employee in advance and explain the types
of work, working conditions, promotion possi-
bilities, etc.2/
In reply to this suggestion, the Personnel Direc-
tor pointed out that a placement officer interviewed
1/ Table 6. The number of separations for the group was
in 1956, and Table 2. Of the 25X9
staff employees as of 31 December 1952, in Grades GS-01-
06, some staff em- 25X9
ployees in these grades as of 31 December 1956, some 78.0
percent were women.
2/ Memorandum for DCI from PD, 15 January 1954, Inspector
General's Report on the Personnel Office. SECRET, in
Records Center Job 57-596, cites the IG's Survey of the
Personnel Office, dated 30 November 1953.
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an employee in advance of his assignment to provide such
information. He questioned that an additional interview
would be justified in view of the expense involved. He
further stated that it was essential that the Personnel
Office have final authority over the assignment of cleri-
cal personnel since it was responsible for the field re-
cruitment of such personnel.
The higher separation rate for clerical employees
in 1953 was partially explained on the following grounds.2/
Dissatisfaction among clerical employees seemed to stem
from lack of career planning for them, misunderstandings
about the jobs, non-use of college background, non-use
of clerical skills, dead-end aspect of jobs, and inade-
quate supervision. In 1952 and 1953 Agency recruiters
made intensive efforts to recruit college girls for
clerical positions, indicating to them the possibility
1/ Memorandum for the DCI from Personnel Director, dated
15 January 1954, Subject: Inspector General's Report
on the Personnel Office, SECRET, in Records Center
Job 57-596.
2/ This subject was investigated by the Committee on
Clerical Employees in the Overt and Covert Offices
of CIA of the Panel on Career Service for Women,
see Report, November 1953, Table E, in Office of
Personnel files.
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of overseas duty. When overseas assignment was not
made immediately, many of the girls so recruited re-
signed. Later in the period, the Office of Personnel
attempted to correct this situation by asking college
girls to sign a statement to the effect that they did
not expect to go overseas until after they had worked
for the Agency for sixteen months. This new procedure
improved the situation although the separation rate for
college women recruited for clerical positions was still
higher than that for high school graduates recruited
for such positions.
d. Contract Personnel
For a variety of reasons, CIA hired many employees
on a contract basis. In some cases, contract personnel
were hired on a temporary basis to meet short-range op-
erational or support needs which could not be met through
the use of available staff employees. Foreign nationals
residing abroad were not eligible for staff employment
and had therefore to be hired as contract agents. As
indicated above, the DD/P area divisions had over
1/
such employees in 1956.-
1/ See above, p.140.
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When an individual's primary employer or employment
interest was not CIA, the additional work he did for
CIA was put on a contract basis. Many Office of Train-
ing language instructors fell in this category. A con-
tract relationship was also used when the nature of the
mission for which the individual was hired precluded
his being subject to administrative control or working
1/
specifically defined hours.
In 1953 the Special Contracting, Allowances and
Processing Staff of the Office of Personnel was respon-
sible for recommending policy standards regarding Agency
contracts for personnel services and certain other spec-
ial contracts required in support of covert operations;
for preparing and executing such contracts; for the re-
view of all field contracts submitted to headquarters;
for the processing of all staff agents; and for re-
2/
viewing and granting special allowances.? In 1955
1/ CIA 15 May 1957, Contract
Personnel, SECRET, in Records Center.
2/ Office of Personnel Memorandum No. 1-170-1, 10
June 1954, Functional Organization of the Office
of Personnel, SECRET, in OP files.
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this Staff was changed into a division and its name
1/
became the Contract Personnel Division.
The workload of the Staff and the Division
concerned with contract personnel did not change
greatly during the period. Every year there were
prepared around new contracts, contract
2/
25X9 amendments, anallilliktaff agent personnel actions.
25X9
In 1955 the Inspector General expressed an interest
in the improvement of procedures concerning contract
personnel:
Strengthen the procedures governing the
handling of contract personnel by requiring
that Personnel, General Counsel and the
area division participate in all hiring and
firing (or contract lapse) actions. This
will eliminate many misunderstandings
currently arising because contract agents
have not been properly informed about their
agreement with the Agency. 3/
In commenting on this recommendation, the Director
of Personnel stated that his Office upon request had
1/ Office of Personnel Memorandum No, 20-190-17,
15 June 1955, Assignments of Personnel, SECRET, in
OP files.
m? 2/ Comptroller, Estimate for Fiscal Years 1955, 1956,
1957, and 1958, Bureau of the Budget Presentations,
SECRET, in Records Center Jobs 58-436, 58-437, 59-417.
3/ Memorandum for DCI from IG, 25 February 1955, Ten
Ways for Improving CIA's Personnel Management,
SECRET, in 0/DCl/ER.
nog
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always assisted the operating divisions in signing up
agents and explaining their obligations under contracts.
He pointed out that his Office was prevented from being
of greater service in drawing up contracts because of
the plea that security factors precluded his staff from
1/
meeting large numbers of clandestine personnel.
During the period a number of improvement were
maN
25X1A
made in procedures for handling contract personnel.
Regulations were issued which formalized in both
headquarters and field standard procedures for the
2/
handling of contract personnel.? Regulations applying
to overseas service were also issued on education
allowances, home service transfer allowances,
standardized allowances, and special allowances.
3/
The Division participated in development of administrative
plans for Agency projects in order to insure standard
handling of contract personnel. It established a 25X1A
1/ Memorandum for DCI from DP, 18 April 1955, same
subject, SECRET, in 0/DCl/ER,
2/ CIA 15 May 1957, loc. cit,
and ty 1957, Contract
Personnel SECRET, in Records Center.
25X1A 3/
9 February 1956, Allowances,
SECRET, in Records Center.
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tax unit for more secure handling of tax problems of
contract types. While increased use was made of the
standard format type contracts developed by the
Division, increased requests were also received for
unusual and varied contractual formats based upon a
growing awareness by the utilizing components of the
1/
psychological effect of contracts upon individuals.
e. Military Personnel
The large role played in intelligence by military
intelligence, the close connection between paramilitary
and military operations, and the intimate relationship
between covert propaganda and psychological warfare
made it inevitable that the Central Intelligence Agency
would seek the services of military personnel on
special details. The Agency was limited by law to
fifteen retired military officers as regular employees,
so, as indicated above, it used military personnel on
detail of whom there were on the average close to
during the period. Of the five Directors of
1/ Office of Personnel, Materials Furnished Historical
Staff, 30 January 1959, CONFIDENTIAL, in HS files.
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Central Intelligence since its beginning in 1947, four
1/
were military men. The Central Intelligence Act
required the Director or the Deputy Director to be a
civilian.
Of the military personnel on detail with the Agency
in 1956 about two-thirds were in the DD/P group, one-
fourth in the DD/S, and most of the remainder in the
Office of DCI. The EE and FE Divisions had the largest
contingents of the area divisions and in the DD/S
group, the Training, Personnel, Communications, and
Logistics Offices had the largest number of military
personnel.
The Office of Personnel had throughout the period
a Military Personnel Division which was responsible
for providing service in the procurement, assignment,
rod administration and disposition of military personnel
detailed to the Agency from the Department of Defense.
It participated in the development of personnel policies
that affected military personnel, it conducted liaison
???
1/ Rear Admiral Sidney W. Souers, USN, from 22 January
mid 1946 until 10 June 1946; Lieutenant General Hoyt S.
Vandenberg, USA, from 10 June 1946 to 1 May 1947;
Rear Admiral Roscoe H. Hillenkoetter, USN, from 1 May
1947 to 7 October 1950; Lieutenant General Walter
Bedell Smith, from 7 October 1950 to 9 February 1953;
and Mr, Allen Welsh Dulles, from 26 February 1953
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with appropriate components of the Department of
Defense, and it maintained the necessary records
1/
pertaining to military personnel.
In 1954 the Director of Personnel conducted a
survey of the morale of military personnel detailed
to the Agency which he submitted to General Cabell,
2/
Deputy Director to Central Intelligence.? The
purpose of this survey was to obtain information
regarding the reported unfavorable attitude of service
personnel concerning their assignments with CIA, to
determine the conditions which might cause such an
attitude, and to recommend corrective action in the
case of unfavorable conditions noted. The Division
air reviewed some exit interviews
of service personnel and found that approximately 30
percent felt that their military specialties were not
fully utilized and were critical of the Agency in some
degree. Among the reasons why officers did not like
aml
NMI
morl
1/ CIA 29 January 1954, Detailed
Military Personnel, and Office of Personnel
Memorandum No, 1-170-1, 10 June 1954, Functional
Organization of the Office of Personnel, SECRET, in
OP files.
2/ Memorandum for DDCI from ADP, 15 September 1954,
Morale of Military Personnel, SECRET, in 0/DCl/ER,
1954 Personnel File.
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duty with the Agency were dissatisfaction with Agency
efficiency rating methods, isolation from their
service, difficulty in obtaining reimbursement for
loss of service benefits or additional expenses
occasioned by Agency security requirements, lack of
proper orientation, and failure within the various
echelons of the Agency to practice those fundamental
principles of leadership requisite to the development
of esprit de corps, pride of accomplishment, and
loyalty in a degree which subordinates personal
interests to achieve the common goal, The Military
Personnel Division took steps to arrange for
preliminary pre-assignment interviews, to compile a
list of officers interested in Agency type of work, to
inform officers that their fears regarding letter
efficiency reports were unfounded, to the distribution
of the Armed Forces Information Digest, to improve
orientation of military personnel, to have the Finance
Office refer claims which they turned down to DD/S for
possible settlement, and to have the Office of Training
include in courses for supervisors instruction in
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those fundamentals of leadership which were taught in
the services and in civilian personnel, industrial
1/
management, and foreman training courses.
f. Recruiting Women for CIA Career Services
The Career Service Board appointed a panel in 1953
to investigate the subject, "Career Employment of Women
in the Central Intelligence Agency." This panel was re-
ferred to internally as the "Petticoat" Panel as it was
composed entirely of women. The Panel found that as
compared with other Government agencies, CIA had offered
at least equivalent opportunities to career women. It
had not, in common with other Government agencies, taken
full advantage of the womanpower resources available to
it. In its report of November 1953, this Panel made the
following recommendations:
1. That the DCI issue a policy statement to
encourage maximum utilization of women in the
Agency.
2. That the DD/A establish a procedure for:
1/ CIA Change 1, 10 June 1955,
Item 8 Efficiency Reports,
23 July 1954, SECRET, and
19 August 1955, Change 1, Pay and Allowances,
in Records Center.
SECRET,
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a. The review of all formal and informal
recruitment requests which state that male
applicants are desired, and
b. Corrective action when the preference
is not justified.
3. That the Agency officials be encouraged to
consider more women for positions in administra-
tive support, analysis, liaison, training, legal
work, operations and translation.
4. That more opportunity be given to qualified
women to advance into positions of executive
responsibility at all grade levels.
5. That a full-time counsellor be assigned to
the Interim Assignment Branch in the Personnel
Office.
6. That special attention be given to clerical
personnel by the appointment of a qualified per-
son in each major component to deal with problems
of clerical personnel.
7. That supervisors provide continuous orientation
to employees at the section or unit level, part-
icularly for the clerical personnel.
8. That career opportunities for clerical per-
sonnel be explored and publicized and that a
member of each career service board be designated
to give special attention to career planning for
clerical personnel.
9. That supervisory training be required for all
supervisors towards improvement of management and
morale in the Agency.
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From the grade distribution comparison of male and
old female staff personnel at the beginning and end of the
1/
period, mixed trends emerge. In the upper grade
group, GS-13-18, women increased their proportion of
total from 2.6 to 3.3 percent. While there were still
no women in the supergrades and only two rose to GS-15,
the absolute number of women in grades, GS-13-15, rose
from 34 to 84. In the middle grades, GS-07--12, women
rose from 24.6 to 31.2 percent of the total and in the
lower grades, GS-01-06, they rose from 72.5 to 78.0
percent of the total. The concentration of women in
the lower grade group was in part the result of more
2/
women seeking employment at a younger age than men.
The net changes indicated that more men were in the 25X9
top grades andmore women, while in the lower grades
there were 182 fewer men and 320 more women. In the
middle grades the net gains were larger for women than
for men, 736 as compared with 357, but it must be remem-
bered that many more men had moved into the upper grades.
MI!
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1/ Office of Personnel, Table 2.
2/ As of December 31, 1954, women constituted 99.4 percent
of employees under 20 and 78.9 percent of employees
20-24. Office of Personnel, Black Book, Tab T as, loc.cit.
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The net change in average grade status for men was .9
increase and for women .6 increase.
In his 1955 Memorandum, "Ten Ways for Improving
CIA's Personnel Management," the IG included the follow-
ing recommendation on women employees:
Place a woman in a senior position (even
possibly as high as a second Deputy Assistant
Director) in the Personnel Office and charge
her with aggressive furthering the careers
of women in the Agency. This woman should not
only see that women are considered for top-
level positions, where there is no requirement
that the position be held by a man, but should
also insure that women returning from overseas
are properly placed.1/
In commenting on this suggestion, the Director
of Personnel said that he considered that he was already
charged with the responsibility, along with similar
responsibilities for all persons, regardless of sex
He felt that he should police this problem rather than
have an individual policing him. He asserted that the
Office of Personnel was continuously on the alert to
see that the best qualified individuals available re-
gardless of sex were hired for or assigned to positions
that were vacant. Personnel officers could only inquire
1/ Memorandum for DCI from IG, 25 February 1955, SECRET.
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into the reasons for job requiring a man rather than a
m. woman, evaluate these reasons, and where the requirement
was not realistic, point this out to the operating of-
"NA 1/
ficial and endeavor to change his mind on the matter.-
aMTI
wri
There were certain positions in the Agency for
which women were not considered. Paramilitary positions
were in this class. In the DD/P area there were also a
reluctance on the part of area divisions to appoint
2/
women as case officers in the field.? There were
women reports analysts and administrative officers in
the field stations, but a lack of other field profes-
sional positions available to women made it difficult
for women professionals to rotate to the field. If
women did not get field experience then they could not
be considered for certain supervisory positions.
g. Recruiting Non-white Employees for CIA Career Services
During the years 1953-1956 high officials of the
1/ Memorandum for DCI from DP, 18 April 1955, Subject:
Ten Ways for Improving CIA's Personnel Management,
SECRET, in 0/DCl/ER file on Personnel.
2/ The subcommittee of the Panel on Career Employment
of Women in CIA Covert Offices found only 7 percent
of the operations officers were women. See Report,
op. cit.
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Agency from time to time noted the small proportion of
1/
non-Caucasians employed by the Agency.? There was no
Negro intelligence analyst in CIA who attained the
eminence achieved by in OSS during
the war.
The number of Negroes employed by the Agency rose
25X2
from 447 of all staff employees) as of Sep-
25X2 tember 30, 1953 to 727 (almost of all staff
2/
employees) as of December 31, 1957.? In 1953 there
were only 14 Negroes who had reached grades as high as
GS-07 (the highest was GS-08) and in 1958 there were
only 54 Negroes in grades GS-07-12 (one in GS-12).
Most of the Negroes employed by the Agency were in grades
GS-06 and below or in the non-GS wage categories. In
general, the most common jobs held by Negroes were at
the laborer, guard or messenger level. Some Negroes
held clerical positions and a few held professional
positions.
1/ Inspector General's Survey of the Junior Officer
Training Program, 2 February 1956.
2/ Office of Personnel, Table 3 and Table entitled,
"Sex and Race of Agency Staff Personnel as of 31
December 1957, SECRET.
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Of the major components, the highest proportion
of Negroes as of December 31, 1957 was found in DD/S
(7.5 percent) and DD/I (7.0 percent) and the lowest in
DD/P (1.6 percent). DD/I had the largest number of
Negro clerical employees, established a pool of
Negro typists who worked on the daily bulletins. High
standards of typing performance were necessary to be
assigned to this pool but the positions in the pool
offered little opportunity for promotion.
There were a number of factors which kept the number
of Negroes hired by the Agency from growing more rapidly
than it did considering the rate of growth of the Negro
population in Washington, D.C. Negroes normally gained
entrance into the Federal Service during the period
through Civil Service examinations. CIA did not use
Civil Service registers for its recruitment. Negroes
tended to gravitate to large offices such as the Census
Bureau which had acquired a reputation for hiring large
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numbers of Negroes. CIA had no such reputation and it
did not have the need to hire as many clerical employees
as the Census Bureau did. The proportion of Negroes
with the education and skills needed for intelligence
work was small. There were relatively few Negro area
specialists, language specialists, economists, scien-
tific researchers, social science analysts, and psycholo-
gists--to mention a few of the specialists in demand in
intelligence operations. As indicated above in the
discussion of recruitment of Junior Officer Trainees,
it was extraordinarily difficult to find Negro college
graduates who could meet the qualifications established
1/
for the program.
In accordance with relevant executive orders, CIA
had throughout the period an officer charged with en-
forcing in CIA the policy of the United States Govern-
ment that equal opportunity be afforded all qualified
persons, consistent with the law, for employment in the
2/
Federal Government.? Prior to January 18, 1955, this
1/ See above, p. 210.
2/ Executive Order No. 10590, 18 January 1955.
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officer was called CIA Fair Employment Officer and
1/
after that date CIA Employment Policy Officer.? Dur-
ing the period these officers were appointed from the
2/
staff of the Inspector General.? The Federal policy
prohibited discrimination against any Agency employee
or applicant for Agency employment because of race,
color, religion, or national origin. The CIA Officer
was under the immediate supervision of the Director for
all matters pertaining to Agency employment policy, in-
cluding any investigation and recommendation regarding
instances of alleged discrimination. In performing
his duties, the Agency Regulation directed this officer
1/ CIA 20 August 1955, revised
4 March 1958, Employment Policy and Procedures Under
Executive Order 10590, SECRET.
2/ CIA 25 November 1953-1 1/2
years before E.O. (see p. 61 n.), SECRET, desig-
nating CIA Fair Employment Of-
ficer; 18 March 1955, des-
ignating CIA Employment Policy Officer,
SECRET; and 19 December
1955, designating as CIA
Employment Policy Officer vie all
designees being on the staff of the Inspector
General.
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to give due consideration to the fact that the National
Security Act of 1947 and the Central Intelligence Act
of 1949 provided that the DCI was responsible for pro-
tecting intelligence sources and methods from unauthor-
ized disclosure. To this end the Director of Security
was charged with assisting and guiding the CIA Employ-
ment Policy Officer on all cases and with coordinating
with the Chief, CI Staff, DD/P in all security aspects
of cases involving DD/P personnel.
There were just two or three charges of discrimin-
ation which were brought to the CIA Employment Policy
Officer during the period. The Office of Personnel did
not know of any applicants who complained of discrimin-
ation.1/
1/ Memorandum for the Record Conversation with Mr.
25X1A Office of
Personnel, re History of Office of Personnel, 1
est June 1959, SECRET, in HS files.
MOO
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6. Personnel Utilization Policies and Practices
During the period operating officials continued to
have primary responsibility for personal utilization
including assignment, rotation, evaluation, promotion,
and termination. With the advent of the Career Service
structure, each Head of a given Career Service assumed a
decentralized responsibility for personnel management
within internal confines of his Career Service. The
Office of Personnel retained centralized responsibility
for advice on personnel utilization activities and for
negotiation of rotation or reassignment of personnel
between Career Service jurisdictions. Placement officers
from the Office of Personnel worked with Career Management
officers of Career Boards and were in most instances
assigned to permanent attendance at board meetings for
purposes of providing technical advice and assistance.
At the beginning of the period the personnel
utilization activities of the Office of Personnel were
divided between the Personnel Division (Overt) and the
Personnel Division (Covert). The reorganization of
September 1953 combined these two divisions into the
Personnel Utilization Division (PUD). This move
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brought all personnel placement officers under one
division chief and permitted an increased exchange of
information and experience between personnel officers
representing the various operating offices. There was,
however, a senior placement officer for each of the main
1/
areas of the Agency; DD/A, DD/I, and DD/P.
The establishment of PUD came about the time that
the Agency was scaling down its personnel requirements
and placing more emphasis upon rotation. The Director
of Central Intelligence had established personnel
ceilings for all offices which were considerably below
2/
T/0 figures.? The main work load in PUD shifted from
advice on initial placement to advice on internal
reassignment problems.
a Assignment, Rotation and Career Planning Program
Improvement in assignment practices was one of the
primary concerns of Agency officials developing the
1/ The name of this unit was changed to Personnel
Assignment Division on 7 March 1955. Three branches
were continued to furnish personnel support to the
Career Boards and Panels of DD/I, DD/P, and DD/S.
Office of Personnel Memorandum No. 20-190-16,
24 May 1955, SECRET, in OP files.
2/ See above, p. 124.
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Career Service program. There was a steady increase in
the consideration of the long-range implications of
assignment actions and a general trend toward more
central review and control of assignment practices
through the Career Service system.
Regular rotation between headquarters and the
field was one of the essentials of a Career Service,
particularly in DD/P. At the beginning of the period
the assignment of individuals to posts in headquarters
and overseas was left to individual components, area
division, senior staffs, and offices. An individual
had to be acceptable to an area division or a staff
headquarters office in order to be placed. This system
of highly developed autonomy upon the part of components
made it difficult in some cases for an individual outside
a given area division to move from headquarters to the
field or for a person in one area to move to another.
During 1953 the FI and PP Career Service Boards
were responsible for reassignment practices and gave
primary consideration to those affecting overseas
returnees. Gradually, more and more information about
returnees was made available to these Boards by the
area divisions concerned. The Boards were principally
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concerned with effecting proper assignments for
individuals who could not be properly assigned through
1/
the efforts of the operating components.
The Inspector General in his memorandum: "Ten
Ways for Improving CIA's Personnel Management" recognized
in early 1955 the need for strengthening the assignment
2/
procedures of the Agency.
Place overseas returnees in positions
before they return. This is not solely a
problem for the Office of Personnel, but is
one that can be solved by Personnel, DD/S and
DD/P. It has been one of our sorest spots in
personnel management, but one to my mind
susceptible to easy solution by good
administration and strong central control of
personnel by DD/P. I would set a deadline
of 30 June 1955 by which time every returnee
will have a job waiting.
Eliminate placement by file shopping. If
an employee is misplaced, he or she should
be relocated by a system of interviews, and
a placement officer should handcarry the file
to interested supervisors.
Imbue in all employees in the Personnel
Office and all supervisors that people are
our most valuable asset--the good ones
should be encouraged and assisted, the poor
1/ Office of Personnel, Materials Furnished the
Historical Staff, 21 January 1960, SECRET, in HS
files.
2/ Memorandum for DCI from IG, 25 February 1955,
CONFIDENTIAL, in 0/DCl/ER in 1955 file marked
"Personnel."
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ones eliminated. But regardless of whether
good or poor, they should be handled as human
beings not as files, numbers or inanimate
objects. I believe that the attitude,
typified by referring to personnel as
"surplus" like war goods or wheat, has been
at the root of some of our management.
The above three points were aimed specifically at
the confusion which resulted from the drastic reduction
During the period of
Allied occupation of the Agency had
built up a large staff in
With the end of occupational
status 0411111111111111111 these slots were no longer
available and it was necessary to reduce the size of
the station. Returnees from in some cases had
troubles in finding new positions and during the time
that they were unassigned they were classified as
1/
"surplus." ?
During this crisis the Office of Personnel worked
out an emergency placement program. All recruitment
requests submitted in the DD/P were held in the Office
of Personnel pending a full review against two sources:
1/ Memorandum for DCI from DP, 18 April 1955, Comments
on Ten Ways for Improving Personnel Management,
SECRET, in 0/DCl/ER.
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(1) the reassignment roster, and (2) machine runs
against coded qualifications requested in the
recruitment request. The special reassignment rosters
were prepared in collaboration with the personal
officers of the operating units to develop accurate
lists of returnees from overseas for whom no
reassignment had been determined. The roster was
indexed by number. Each number corresponded to the
name of the employee maintained on a separate master
list, Full biographic information relative to experience
and qualifications of employees was listed by number on
the reassignment roster. Placement officers reviewed
the experience and qualifications of employees for
whom reassignment was necessary. The information was
forwarded to the appropriate operating component which
had issued vacancy notices requiring the same or similar
qualifications with requests for a review of all biographic
information and personal interviews of the nominee. In
many cases, this information was forwarded to appropriate
components, even though vacancy notices had not been
published, with a view toward meeting attrition
1/
requirements.?
/ Office of Personnel, Materials Furnished to Historical
Staff, 30 January 1959, CONFIDENTIAL, in HS files.
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With the large number of persons appearing in 1953
and 1954 on the reassignment roster, this procedure
broke down, As a result, many of these employees were
forced to seek employment on their own, utilizing
personal relations with various key operating officers
By late 1954, after the greater portion of the
25X1A returnees from the reduced had been
suitably placed, this process was replaced by current
reviews of all recruitment requests and EOD requests at
the DD/P level in terms of authorized ceiling. Applicants
were entered on duty only with the approval of DD/P. This
latter practice continued through 1956 with the continued
stringency of ceiling allocation.
In 1956, the DD/I instituted procedures that were
designed to provide maximum opportunities for DD/I
Career Designees to advance to higher-graded vacant
positions. When any DD/I component had a vacant
position to be filled, the vacancy was published in
ant terms of all pertinent information throughout all DD/I
Career Services. Any DD/I employee was eligible to
apply for consideration for the vacant job. Such
applications were forwarded through the appropriate
DD/I Career Service for review. Upon the approval of
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that Career Service, the application was sent to the
Career Service having jurisdiction over the operating
component in which the vacancy existed. The Career
Service interested in filling the vacancy was expected
to interview a maximum of three qualified nominees in
the event that the total applications exceeded that
number. In the event applications were less than three
in number, all applicants were to be personally
interviewed If on the basis of the total applications
received, the Career Service with the vacancy felt that
there were no qualified individuals within the DD/I to
fill the job, external recruitment requests were
forwarded to the Personnel Assignment Division for
review and subsequent forwarding to Personnel Procurement
1/
Division for the issuance of recruitment requisition.
The DD/P was also moving in the direction of more
2/
orderly reassignment of returnees. Among the
obstacles had been the reluctance of the individual
to agree to a definite next assignment before he returned
1/ Ibid.
2/ Memorandum for DCI from DD/P, 5 April 1955, Subject:
Memorandum from the IG, Ten Ways for Improving CIA's
Personnel Management, dated 25 February 1955, SECRET,
in 0/DCl/ER.
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and the suspicion which returnees viewed efforts to
place them. DD/P was confident that the Clandestine
Services career management officers were becoming
steadily more effective as negotiators and educators
in the assignment field, He held orderly reassignment
was complicated by the inflexibility of slots, which
prevented them from changing their staffing pattern
to meet rapidly changing requirements, and by the
length of time it took to adjudicate conflicting
demands for personnel among so many branches, divisions,
and staffs, all understaffed so far as really first-class
personnel was concerned.
The Director of Personnel agreed that it had
become a generally accepted principle that an individual
who satisfactorily completed a field assignment would
1/
be appropriately reassigned.? The effective
implementation of this policy required that the
reassignment of field personnel should be carefully
planned and finally determined, if possible, before
the expiration of their tours of duty in the field.
1/ Memorandum for DCI from DP, dated 18 April 1955,
Subject: Ten Ways for Improving CIA's Personnel
Management, SECRET, in 0/DCl/ER.
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It was with this end in view that the Field Reassignment
Questionnaire had been designed by task forces of senior
FI and PP officers appointed to study the Clandestine
1/
Services Career Program. This questionnaire,? due
eight months in advance of the expiration of overseas
tours, contained information about the major duties of
individuals in the field, their preferences for next
assignments, and their need for headquarters training.
It became a priority action paper in the Career
Service elements where Career Service Boards, Career
Management Officers, Placement Officers, supervisors,
and returnees were working together properly on
reassignment problems.
In order to facilitate the advance determination
of assignments by providing long-range guidance to
supervisory and Career Service elements, work was
initiated in 1955 on a Career Preference Outline which
became the basis for the Agency Regulation on Career
2/
Planning for Individuals.? This outline was a
documented description of the individual's career
1/ CIA 16 December 1954, Overseas
Tours of Duty, SECRET, in Records Center.
2/ CIA '1 13 November 1956, SECRET,
in Records Center.
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interests and proposed career activities for an
appropriate specified time, to which were appended the
comments of his supervisor and his Career Service, The
proposals expressed by the individual might include
suggested retention in present position, reassignment,
or training. Either the individual or his supervisor,
with the concurrence of the Head of his Career Service,
could initiate the preparation of an outline. This
program had the advantage of encouraging deliberate
consideration of the long-range utilization of
individuals in the interest of the Clandestine Services
as a whole.
b. Employee Rating
Considerable attention was paid during the period
1953-1956 to improving the system used by supervisors
for rating or evaluating their subordinates. The
initial evaluation system in the Career Service program
was based on the Personnel Evaluation Report (PER)
introduced in 1952. It was superseded by the first
Fitness Report, introduced on an experimental basis
in November 1954, which was designed to provide a
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report more suitable for selection purposes,? At the
same time a study was started to find out what supervisors
at all levels wanted in a fitness report. This approach
recognized the controversial nature of fitness reporting,
there being almost as many opinions about it as there
were people. The study included an analysis of the
replies of supervisors to the questionnaire circulated
about the November 1954 Fitness Report,, an analysis of
the content of completed Fitness Reports and statistical
studies pertaining thereto, interviews with operating
officials, administrative officers, supervisors, and
personnel officers, and development of a proposed
Fitness Report based on majority opinion which, in
turn- was submitted to further criticism and revision.
Out of this emerged a revised Fitness Report which the
3/
Career Council adopted.
1/ CIA21 September 1954,
Fitn11111111!!!!!!!!""AL, in Records Center.
2/ CIA 21 January 1956, Guide
fornpe-oinNo,45: Fitness Report,
CONFIDENTIAL, in Records Center.
2/
25X1A 3/ CIA21 January 1956, Fitness
Report, SECRET, in Records Center.
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The Fitness Report was designed so that both the
interests of the employees and of management would be
considered. This was done by differentiating between
the evaluation of job performance -- the subject held
to be of particular concern to the employee and his
immediate supervisors, and the evaluation of potential --
the subject held to be of particular interest to secondary
levels of supervision and to career service elements. The
performance part was designed to elicit the supervisor's
opinion concerning the on-the-job performance of the
individual. It was concerned with the productivity
and quality of performance of the employee on the job
he was performing. Except under unusual circumstances,
the employee had the right to see this part after
completion by the supervisor. The supervisor might
elect not to show the report to the employee when
unusual operational conditions so warranted, when, for
medical or psychological reasons, it would be ill-
advised to show the individual the report, and when
security considerations precluded showing the report.
The potential part was designed to provide operating
officials and personnel officers with an opinion
concerning the potential of the employee. Such
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information was needed for consideration of the
employee's assignment, promotion, selection for
membership in the Career Staff and other actions
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affecting his status. It was decided that this part
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would not be shown to the individual being rated,?
c. Promotion Policies and Practices
In order to attract and to hold able employees
CIA had to have a liberal promotion policy. The burden
and inconvenience of the security regulations, the
limitations on outside activities, the risi of certain
overseas assignments, and the moral questions raised by
some of the clandestine activities called for a high
degree of patriotism that the top officials thought
should be rewarded by a generous promotion policy.
The annual promotion rates of staff personnel, as
calculated from the monthly average on duty and the
cumulative number of promotions each year, showed a
fairly high level for the period as a whole. There
was a decline toward the end of the period but this
was the result of the personnel freeze rather than the
1/ 21 January 1956, loc cit.
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result of a change in promotion policy. During the
calendar year 1953 there was 45.4 promotions for every
hundred employees on duty during an average month.
During the calendar year 1956, the promotion rate was
34.0. The highest promotion rate was for the Office
of the Director and the rates for other offices placed
them in the following descending rank order: DD/S,
1/
DD/P, and DD/I.?
During the period the Agency commonly followed
the practice of underslotting, i.e., assigning employees
to positions graded higher than the employee's grade.
As the employee acquired experience and demonstrated
his ability he would be slotted into the higher grade.
This practice meant that there was headroom for
promotions. As indicated below, this practice was
contrary to the Civil Service classification system
which required that a position of a given grade could
be filled only by a person who already had the
2/
qualifications for that grade.? The practice began
1/ Office of Personnel, Table 12.
2/ See below, p. 251.
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before 1953 when the Agency was rapidly expanding and
could not always find candidates with the exact
qualifications for the positions to be filled. It
was formalized in 1954 by an Agency Regulation which
1/
was popularly known as the "Black Duck" Regulation.
This Regulation provided that an employee might be
assigned to a position classified at a higher grade or
a lower grade than his present grade. The declining
promotion rate would seem to indicate that the practice
was less common at the end of the period than it was at
the beginning. With the slowing down of recruitment,
with the low turnover rate in the higher grades, the
opportunities for promotion were less at the end of the
period than at the beginning.
The system of competitive promotion, started in the
fall of 1956, provided for a periodic (not less than
once per year) competitive consideration for promotion
of all employees who had met time-in-grade requirements
1/ CIA 9 October 1954, Assignment,
Temporary Assignment Without Change in Grade, SECRET.
See also Memorandum for the Record, 8 June 1959,
Conversation with Chief, Position
Evaluation Divisirl!!!!!!!!!!!!!!1, Office of
Personnel, 1953-1956, SECRET, in HS files.
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for promotion. Employees of a given Career Service
competed for promotions with all others of the same
grade level and in the same general occupational field.
Thus, within the Support Career Service, every employee
with personnel as his occupational career designation
would compete with every other employee of that
designation and the same GS grade, For grade levels
GS-7 through GS-14, Competitive Evaluation Panels were
established by the head of the Career Service to rank
all employees at each grade level who were in competition
for promotion. Criteria considered in the ranking
included performance as shown by productivity, quality,
and level of job performed, qualifications as shown
education, experience, training and personal
characteristics, value of employee to the Agency as
shown by present usefulness and future potential, and
acceptance of Career Staff obligations. Information
on these factors was obtained by review of employee
performance as shown by Biographic Profile, a summary
of biographic, service and performance information
prepared by the Office of Personnel from the personnel
by
1/ CIA 29 November 1956, SECRET, 25X1A
Competitive Promotion, in Records Center.
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folder, Fitness Reports, qualification records, and
through employee and supervisor interviews. Final
rankings were computed as a composite of individual
rankings with equal weight being given to each panel
1/
member's judgment.
Upon completion of Panel Evaivation, the Head of
the Career Service used the rank order list as a guide
in recommending promotion actions to the Director of
Personnel. Competitive promotions were made on the
basis of merit, not on the basis of availability of
positions of a higher grade. Persons promoted under
competitive evaluation procedures might occupy a
position lower in grade than their grade after promotion
when it was necessary in the best interests of the
Agency that they were retained in such a position in a
personal rank assignment status. It was also possible
that they might occupy positions higher in grade than
their grade after promotion, when necessary. On the
other hand, personnel promoted had to meet established
qualification requirements and had to be assigned to a
position of appropriate grade either upon promotion or
1/ CIA 1111111111111111.11, 29 November 1956, Guide
for Competitive rom Panels, SECRET, in Records
Center.
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as soon as they could be released from the job they
held. As a control mechanism, each Career Service and
competitive area within a Career Service had to keep
the grades of personnel in line with the grades of the
positions which the Career Service was responsible for
1/
staffing.
The competitive promotion system was actually in
mio
effect in 1956 for personnel in grades GS-13 and GS 14
in the Clandestine Services Career Service. Various
other systems involving varying degrees of competitive
.01
selection for promotion were in effect in other Career
Services. The Agency-wide system was set up at the
close of 1956.
moi
wig)
7. Personnel Classification Policies and Practices
Because of security requirements, CIA was exempted
2/
from the Classification Act of 1949.? Civil Service
Commission classification experts could not come to
the Agency and demand a full description of the
positions in the Clandestine Services. On the other
1/ Ibid.
2/ Section 202 of the Classification Act of 1949,
? 63 Stat. 954.
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hand, 11, was Agency policy to adhere to the provisions
of this Act insofar as possible and to follow the basic
classification principles and compensation schedules in
order to assure that employees would receive equality
1/
of compensation for work performance.
In his paper on the Philosophy of Career Service,
the DD/S placed great emphasis upon the need that each
mill
manager have a clear definition of requirements for
each job under his jurisdiction. The organization of
CIA had to be fluid in order to respond to constantly
varying demands made upon it. In some jobs absolute
conformity was needed and in others maximum creativity
was desired. Both of these needs put a special
41111
.40
amit
obligation on all supervisors and managers to evaluate
subordinate positions frequently and to be able to
define clearly at all times not only the obvious basic
requirements for the immediate jobs under them but also
2/
the subtler requirements of attitudes and understandings.
1/ CIA 1.11=1111111 5 November 1951, Personnel
Polf71777?CONYIDENTIAL.
2/ Memorandum for DCI from DD/S, 19 May 1960, Response
to Inspector General's Survey on Career Service,
CONFIDENTIAL, in DD/S files.
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The Personnel Evaluation Divison (known in 1953
and 1954 as the Classification and Wage Division) was
charged with making individual job analyses and
organizational surveys in cooperation with supervisors
in order to present job information in a form of maximum
usefulness for recruitment, placement, management of
1/
personnel, training and career development.? It
established the various classes of positions, the grade
levels within each class, and also reviewed the way in
which the classification plan was being carried out
throughout the Agency. It
and positions descriptions
and in industry with those
proposed changes in Tables
made comparisons of jobs
in the Department of State
in CIA. It also reviewed
of Organization. The
Division was organized into a Covert Branch, an Overt
Branch, and a Surveys and Standards Staff.
Special operating conditions in the Agency made it
difficult to follow in all cases the established
classification practices. Rapidly changing operational
1/ Office of Personnel Memorandum No. 1-170-1, 10 June
1954, Functional Organization of the Office of
Personnel, SECRET, in OP files.
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situations dictated classification review and decisions
frequently without benefit of detailed information from
operating units on organizational functions, programs,
relationships, or the duties of individual positions.
This was contrary to classification principles. In
addition, the highly classified and sensitive nature of
some programs, operations and responsibilities of
individual positions required special classification
1/
methods and techniques.
In his survey of the Office of Personnel in 1953,
the Inspector General expressed an interest in the
peculiar classification problems of the Agency:
There is no question that a
classification system is required. It
is also agreed that the Civil Service
wage scale is acceptable. What is
required is perhaps a classification
system tailored exclusively to the
requirements of CIA. 2/
The Acting Assistant Director for Personnel in
commenting on this observation stated that the Agency's
1/ In 1955 the DD/P expressed his concern for the need for
more flexible procedures in personnel classification.
See Memorandum for DCI from DD/P, 5 April 1955, Ten Ways
for Improving CIA's Personnel Management, SECRET, in
0/DCl/ER.
2/ Memorandum for DCI from PD, 15 January 1954, Inspector
General's Report on the Personnel Office, SECRET, in
Records Center Job 57-596, cites the IG's Survey of
the Personnel Office, dated 30 November 1953.
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problem with respect to classification was due to a lack
of understanding among operating components concerning
the purposes of classification and their reluctance to
accept the application of any classification system.
He contended that the experience of Government and
industry alike had demonstrated the need for systematic
classification of positions. This was a highly technical
process which involved consideration of occupational and
qualifications information as well as pay. He pointed
out that the Atomic Energy Commission, also exempt from
the Classification Act of 1949, found itself in serious
difficulty with Congress when it failed to administer
its classification plan in accordance with the basic
1/
principles stated in that Act.
During 1953 the Classification and Wage Division
prepared regulations which spelled out the requirements
for the preparation of position descriptions and
contained an explanation of allocation factors for
2/
Agency positions. The Division likewise developed an
1/ Memorandum for DCI from Personnel Director, dated
15 January 1954, Inspector General's Report on the
Personnel Office, SECRET, in Records Center Job 57-596.
2/ CIA 31 March 1954, Position
Analysis, SECRET, in Records Center.
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Agency Positions Standards Handbook containing
definitions of occupational groups and series and a
listing of all classification titles and occupational
1/
codes.
The publication of new information regarding
position standards continued during the balance of the
period. In 1954 these publications were used in
resolving differences with operating offices on
proposed grade structures of reorganized Tables of
Organization. In 1955, analytical studies were
undertaken by the Divison to increase the flexibility
of the position classification system in order to
conform to the concepts of the Career Service program.
The Personnel Evaluation Diviaon played an active
role in the development of the manpower control system
which was tried out on an experimental basis in the
Office of Communications in 1956 and later extended to
2/
the entire Agency.? One of the purposes of the new
25X1A
1/ CIA, Estimate of Requirements Fiscal Year 1956, Bureau
of the Budget Submission, 15 September 1954, SECRET, in
Records Center Job Position Standards,
SECRET, in Records Center.
2/ Office of Personnel, Staffing/Development Complement
Concept for Manpower Control, Initial Installation,
Office of Communications, 1955, SECRET, in OP files
and 14 November 1958, Ceiling and
Position Authorization, SECRET, in Records Center.
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system was to provide flexibility in position structure
(types, levels, organizational location of positions) to
enable responsible supervisors to shift personnel to meet
changed workload requirements. The system first made the
distinction between a "staffing complement" and a
"development complement." Employees actually assigned
to and engaged in productive work were placed on the
"staffing complement." Employees in a temporary status
of travel, training, or other interim assignment were
put on the "development complement." Positions on the
staffing complement were subdivided into "limited
positions" and "flexible positions." "Limited positions"
were those for which a maximum number of occupants was
indicated. This maximum had to be adhered to except
for authorized overlap for job orientation. Thus there
could only be one division chief except for the temporary
overlap when a division chief was being replaced.
"Flexible positions" were those proposed for multiple
occupancy as needs dictated. This system made possible
the movement of personnel into flexible positions without
requiring the revision of personnel planning papers or
the reclassification of positions. One of the purposes
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of the system was to place more emphasis upon the annual
planning of personnel needs rather than upon the minute
review of the classification of new positions and the
reclassification of existing positions.
8. Termination Policies and Practices
The Director's plenary authority to terminate the
employment of any officer or employee of the Agency
under Section 102(c) of the National Security Act of
1947 continued to be a central feature of the Agency
1/
personnel system. It was a power which remained in
the background but every effort was made to insure that
full information and pertinent recommendations were
available for the Director's consideration when he
decided to take such action. An Employment Review
Board was established in 1954 to consider separation
2/
cases of a highly sensitive nature.
1/ Public Law 253, 80th Congress, 37 Stat. 555.
2/ Memorandum for Chairman, CIA Career Service Board,
from Chairman of the Legislative
Task Force, 13 August 1953, Preliminary Report of
the Legislative Task Force, Tab 0, SECRET,
recommended the establishment of such a board which
was done by CIA 1 November
1954, Separations, SECRET.
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The Office of Personnel continued to furnish
operating officials with technical advice and guidance
on termination cases. Separations were conducted for
the most part under procedures which conformed to the
provisions of Civil Service Regulations. Problems of
adequate documentation, legal conformance to the
Veterans Preference Act, adequately designed trial
periods, and suitable notification to the employee
concerned in the form of warning letters and letter of
charges were of concern to the Office of Personnel in
1/
disciplinary terminations. Every effort was made to
avoid appeals to the Civil Service Commission since the
review process might expose intelligence sources or
2/
methods.? In a few cases, those involving security
considerations, the Director's plenary authority to
terminate was recommended by the Director of Personnel.
1/ Office of Personnel, Material Furnished to Historical
CONFIDENTIAL, in HS. CIA
10 December 1953, revised 23
ii 1955 Separation Actions, CONFIDENTIAL, and CIA
1 November 1954, Employment
in Records Center.
Review Board, SECRET,
2/ Memorandum for DD/CI, from DD/S, 7 May 1956, Subject:
Termination of Agency Employees, SECRET, in 0/DCl/ER.
During the period, actions were occasionally appealed
and, in at least two instances, Agency decisions were
reversed by the Commission.
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Toward the end of the period, the DCI apparently
concluded that the termination of mediocre employees
was advisable in the interest of the United States and
1/
could be effected under this same statutory provision.
The details of the selection out program were worked out
after the period under discussion.
9. Career Benefits
The reports of some of the Task Forces made in
1953 and 1954 indicate that certain Agency officials
thought at that time that membership in the Career
Staff would carry certain benefits and rights which
.rof would set the Staff apart from the Civil Service
and gave it a position midway between the Foreign Service
MEI
ailli
and the main body of Civil Servants. The Agency had
broadened earlier the interpretation of its own
authority to provide for medical care for overseas
employees that was not directly connected with their
2/
employment.? Beyond this and the insurance and
1/ Memorandum for DD/CI from IG, 24 February 1956,
Subject: Termination of Agency Employees, SECRET,
in 0/DCl/ER.
2/ CIA 9 December 1958, Employees'
Compensation and Overseas Medical Benefits, SECRET, in
Records Center.
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incentive awards plans, membership in the Career Staff
did not bring immediate benefits which were substantially
different from those enjoyed by Civil Service employees.
Continuous consideration was given during the
period to ways in which career service in CIA could be
made more attractive. A Legislative Task Force reported
in August 1953 on suggestions related to legislation that
might be required for the establishment of a career
1/
serviceT It proposed a statutory basis for a CIA
career service similar to that of the Foreign Service.
Its proposals included additional medical benefits,
educational allowances, a more liberal retirement system,
and certain home leave benefits for employees who had
served long periods of time overseas. Amendments of
Central Intelligence Act of 1949 which dealt with home
leave, travel, storage, transportation, and medical care
of dependents were proposed to Congress in 1956. The
DCI pointed out in a letter accompanying the bill that
the Agency was not requesting benefits or privileges
over and beyond those enjoyed or being requested by
1/ Memorandum for Chairman, CIA Career Service Board
from Chairman of the Legislative Task Force,
13 August 1953, Preliminary Report of the Legislative
Task Force, SECRET, in Records Center Job 58-166.
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aw
other agencies with important responsibilities in the
1/
foreign field.? The bill was not passed by this
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old
anmi
Congress. As the period ended, the Agency was planning
to redraft and resubmit the amendments at the next
2/
Congress.
One of the employee benefits systems that was
improved during the period was the insurance and claims
program for Agency personnel which was run by the
Employee Services Staff in the beginning of 1953, by
the Insurance and Claims Branch of the Employee Services
Division after the reorganization of September 1953,
and by Insurance and Casualty Division after the
reorganization of June 1955. This activity included
Agency-sponsored insurance programs, the Federal
Employees Group Life Insurance program, and casualty
benefits under the Federal Employees Compensation Act
and under the Central Intelligence Agency Act. Included
in these programs were life, health and accident,
3/
hospitalization, and air travel insurance.
1/ Congressional Record, 15 May 1956.
2/ Comptroller, Bureau of the Budget Hearings on FY 1958
Budget, 26 October 1956, SECRET, in Records Center
Job 59-417.
3/ Office of Personnel Memorandum No. 20-190-17, 15 June
1955, Assignments of Personnel, SECRET, in OP.
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The staff engaged in these activities issued
insurance policies, collected premiums, adjusted claims,
and maintained liaison with underwriters. The mandates
of Agency security required an unusual type of handling
in administering the insurance, benefit and casualty
functions. These programs were maintained in a secure
manner by retaining all individual insurance records
1/
within the Agency.? With the adoption of new insurance
plans, there was a considerable increase in the number
2/
of new applications for coverage.
In discussing a recommendation of the Inspector
General regarding pushing claims under Federal
Employees Compensation Act, the Director of Personnel
pointed out that the Department of Labor Bureau in
charge had expressed the view in 1954 that claims
submitted by CIA were as thoroughly investigated and as
well documented as any they received. A comparison of
.a
1/ Comptroller, Bureau of the Budget Hearings on
FY 1958 Budget, SECRET, in Records Center Job 59-417.
2/ CIA, Estimate of Requirements, FY 1957, SECRET,
? 20 September 1955, in Records Center Job 58-437.
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the percentage of CIA claims approved compared favorably
with the average percentage of claims approved in the
Government as a whole. Through experience in the actual
processing of cases, the Bureau of Employee's Compensation
became increasingly familiar with the requirements of the
1/
-unusual cases peculiar to CIA.
The incentive awards system was continued and
expanded during the period. This system provided for
the granting of Honor and Suggestion Awards to persons
who significantly contributed to the intelligence effort
of the United States or who contributed to the
efficiency of operations, security, morale, or working
conditions of CIA. The Incentive Awards Committee
(later called the Incentive Awards Board and still
later the Suggestion Awards Committee) and the Honor
2/
Awards Board were continued as separate bodies.
Until August 26, 1955 responsibility for the administration
mw
of these two programs was in the Office of Personnel but
on that date the Incentive Awards Program was transferred
411111
1/ Memorandum for DCI from PD, 15 January 1954, IG's Report
on Personnel Office, SECRET, in Records Center Job 57-596.
25X1A 2/ CIA 21 April 1953, Incentive Awards
Program,, in Records Center and CIA
25X1A20 February 1953, Honor Awards, SECRET, in Records
25X1A Center.
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to the Management Staff.? The Honor Awards Program
mr
for personal deeds of valor and for singularly meritorious
performance remained under the supervision of the Office
of Personnel. In 1953 the Agency secured Presidential
2/
approval for the National Security Medal.? With the
01110
adt
passage of the Government Employees' Incentive Awards
Act of 1954 the top amount of an incentive award that
could be granted by the Agency was increased from $1,000
t $5,000 but system of salary increases for superior
3/
accomplishment was eliminated.? Under liberalized
rules, intangible benefits to the Agency as well as
tangible benefits were considered in making Suggestion
4/
Awards.
On his comments on Career Service after eight years
experience with the system, the DD/S said that there was
25X1A
25X1A
25X1A
25X1A
1/
2/
3/
4/
26 August 1955, Incentive
Awards Board, SECRET, in Records Center.
21 May 1953, Honor Awards,
, in Records Center.
13 January 1955, Incentive
7TWTPUT-P777MIT-gRatt, in Records Center.
23 July 1956, Honor and
Awards, SECRET, in Records Center.
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more good to be gained from striving for intangible
benefits brought about by good personnel administration
and good management than from emphasizing tangible
benefits. He nevertheless thought that tangible benefits
were important for the appropriate people under the right
circumstances. In the beginning too much emphasis had
been placed on tangible benefits. This was a false lure
and an unfortunately false goal for the members of the
Career Service. Realistic and reasonable benefits would
evolve naturally as a result of improved and seasoned
personnel practices and when conferred in the proper
context - i.e., recognized accomplishment in reference
1/
to stipulated Agency needs - would be accepted by all.
10. General Trends
During the period CIA scaled down its ambitious
plans for recruiting new personnel. While there was
increased emphasis upon rotation between headquarters
and the field, there was a decrease in overseas staff
positions.
1/ Memorandum for DCI from DD/S, 17 May 1960, Response
to Inspector General's Survey on Career Service,
CONFIDENTIAL.
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Increased attention was given to long-range career
planning, to the re-examination after three years of
the question of suitability, and to office-wide and
Agency-wide personnel needs.
CIA moved in the direction of a personnel system
which gave the operating components a greater degree of
flexibility to utilize their assets to meet work
requirements than would have been possible had the
Agency adhered rigidly to the Civil Service classification
system which required that a position of a given grade had
to be ffEed by a person who had the qualifications for
that grade. The new CIA system provided for an over-all
grade authorization. As long as a component stayed within
its ceiling and grade control system, it could shift
people around and promote them competitively, without
coming back to the Management Staff, the Office of
Personnel, and the DD/S for reclassification. The new
system gave top management an opportunity to plan salary
and wage scale and manpower needs for an entire year.
The Agency system did not emphasize the man as did the
Foreign Service of the Department of State under which a
Foreign Service Officer was given a grade and it was up
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to the Personnel Office to find him a position. The
CIA system was in between the Civil Service system and
the Foreign Service system. It established a framework
of jobs on the basis of reasonable cost and at the same
time permitted persons to be promoted on a competitive
basis.
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CIA Internal Use Only
Access Controlled by
CIA Historical Staff
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