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The Academy Panel applauds the effort that the Office of Under Secretary of Defense for Intelligence (OUSD(I)) has made to enhance the ability of the DoD intelligence components to accomplish their mission by creating and implementing DCIPS. The creation and introduction of DCIPS have been approached with great seriousness, hard work, and creativity. The Panel has been impressed both with the DCIPS system and the people who work within it. Unlike the General Schedule (GS) compensation system it is intended to replace, DCIPS provides performance-based compensation increases in lieu of tenure-based salary increases. It also differs from the GS system in providing for a stronger, more rigorous performance management system, and places positions in five broad pay bands rather than the 15 GS grade levels. Significantly, DCIPS retains the Merit Systems Principles of Section 2301 of Title 5, United States Code. This means that employees covered by DCIPS continue to have the same protections and safeguards from unfair treatment as all other federal employees. The Panel found no indication that DCIPS is creating problems related to diversity or fair pay. In fact, the Panel concluded that there is nothing inherent in the DCIPS design that would lead to such negative impacts. The analysis of NGA data shows that disparities in the ratings of minorities and women compared to other employees existed before and after DCIPS was implemented. These long-standing disparities may be caused by biases of individual managers or may accurately reflect differences in individual performance. In either event, they are clearly not attributable to inherent flaws in either the design or implementation of DCIPS. The Panel has recommended further analysis of the results of the NGA implementation of DCIPS to determine whether individual managers are engaging in unfair practices or treatment of certain classes of employees. With regard to the three key focus areas of its investigation, the Panel finds that: • The design of DCIPS is fundamentally sound and conforms to accepted principles for designing performance-based compensation systems, including appropriate equity considerations and internal checks and balances to ensure fairness. The use of a tailored occupational framework, a single pay band structure, a rigorous performance management system, and separate performance management and pay determination processes, and its planned process for ongoing system evaluation all contribute to the strength of DCIPS’ design. The Panel has identified a number of areas where improvements can be made, but considers these to be opportunities to further tailor, strengthen, and refine a system that is fundamentally sound, rather than rectifications of fatal design problems. • Implementation of DCIPS has been flawed. OUSD(I) must establish a stronger foundation for organizational change. In particular, leadership in every component must visibly demonstrate that it fully supports the system. Further, OUSD(I) leadership must allocate sufficient staff time and other resources to develop a more comprehensive implementation strategy; a stronger system of governance and accountability; clearer messages; and refined business rules, tools and training. xii
• It is too soon to draw conclusions about the impact of DCIPS, due to the limited amount of experience with the system. Only one DoD intelligence component has fully implemented it, and the NDAA suspended significant portions of the system for this year. The Panel recommends further analysis of NGA’s 2009 performance evaluations and payouts to determine if there are issues regarding protected classes that warrant further attention. However, the Panel finds nothing inherent in the DCIPS’ design that would lead to negative impacts with regard to career progression or diversity. Based on these findings and the mission-critical nature of this effort, the Panel recommends that OUSD(I) act with urgency to address the implementation issues that have been identified, and phase in the DCIPS performance-based compensation elements based on readiness assessments of the remaining DoD intelligence components. xiii
Page 1 and 2: A Report by a Panel of the NATIONAL
Page 3 and 4: FOREWORD The terrorist attacks of S
Page 5 and 6: TABLE OF CONTENTS FOREWORD.........
Page 7 and 8: Governance ........................
Page 9 and 10: ACRONYMS Academy CWB DCIPS DIA DIHR
Page 11: EXECUTIVE SUMMARY The terrorist att
Page 15 and 16: CHAPTER 1 BACKGROUND, METHODOLOGY A
Page 17 and 18: • The adequacy of the training, p
Page 19 and 20: • Chapter 6: The Way Forward for
Page 21 and 22: CHAPTER 2 THE HISTORICAL CONTEXT FO
Page 23 and 24: National intelligence is still orga
Page 25 and 26: ewarded longevity over performance
Page 27 and 28: OTHERS FACTORS THAT IMPACTED DCIPS
Page 29 and 30: • Partisan politics could play an
Page 31 and 32: Administration (TSA), which operate
Page 33 and 34: NATIONAL DEFENSE AUTHORIZATION ACT
Page 35 and 36: CHAPTER 3 ASSESSING DCIPS’ DESIGN
Page 37 and 38: FRAMEWORK FOR ASSESSING DCIPS’ DE
Page 39 and 40: Figure 3-1. Objectives of the NICCP
Page 41 and 42: PRINCIPLE The system is transparent
Page 43 and 44: The Defense Intelligence Enterprise
Page 45 and 46: discourage teamwork…to the organi
Page 47 and 48: Figure 3-2. DCIPS 2010 Pay Band Str
Page 49 and 50: enable managers and supervisors to
Page 51 and 52: they achieve their goals. Given the
Page 53 and 54: Element Definition Supervisory/Mana
Page 55 and 56: cooperation with ODNI. The review w
Page 57 and 58: Source: OUSD(I) Human Capital Manag
Page 59 and 60: eplaces the current government-wide
Page 61 and 62: esults, but the final DCIPS evaluat
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The Panel believes that adequate fu
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HOW DCIPS COMPARES TO THE GS/GG SYS
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Table 3-7. Comparison of DCIPS and
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Design Feature DCIPS NSPS quality s
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Recommendation 4. To ensure equitab
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CHAPTER 4 ASSESSING DCIPS’ IMPLEM
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Table 4-1. Overview of the OPM Obje
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In the DCIPS context, “leaders”
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intelligence component would do so.
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• Credible, timely, and original
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Finding 4-5 The DCIPS website and R
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Finding 4-6 The lack of a communica
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No training needs assessments have
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pay pool exercises to be helpful an
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• The Commerce Department used fo
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3. Implementing DCIPS; 4. Evaluatin
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created a separate document for som
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lack of an overall change strategy
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changed and by whom. 149 This appea
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How pay pools are constructed and w
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DCIPS survey results indicate that
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CONCLUSIONS The Panel finds that a
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CHAPTER 5 ASSESSING DCIPS’ IMPACT
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• Disincentives to become a super
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employees received performance rati
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Figure 5-1. DCIPS Interim Array of
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Table 5-1. NGA Indices and Comparat
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of implementation. Nonetheless, OUS
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CHAPTER 6 THE WAY FORWARD FOR DCIPS
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OUSD(I) has advised the Panel that
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CHAPTER 7 PANEL RECOMMENDATIONS Bas
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• Clarify and strengthen its guid
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Recommendation 23. OUSD(I) should d
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APPENDIX B APPENDIX A PANEL AND STA
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APPENDIX B Committee on U.S. Nation
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APPENDIX B PARTICIPATING INDIVIDUAL
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Michael Jackson*—President and Fo
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Defense Intelligence Agency Kendrea
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APPENDIX C APPENDIX C BIBLIOGRAPHY
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APPENDIX C Langbein, L. “The impa
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APPENDIX D APPENDIX D MERIT SYSTEMS
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APPENDIX D (10) Discriminating agai
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APPENDIX E APPENDIX E DCIPS PERFORM
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APPENDIX E EMPLOYEE NAME: _________
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APPENDIX E EMPLOYEE NAME: _________
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APPENDIX F APPENDIX F OPEN FORUM LO
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APPENDIX G APPENDIX G MITRE’S PER
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