Objectives

The primary objective of the audit was to follow up on our May 2005 report on how effectively the FBI hires, trains, utilizes, and retains its intelligence analysts. To accomplish this objective, we examined the progress the FBI has made in implementing the 15 recommendations from our previous report and the current status of the FBI’s intelligence analyst program compared to our previous report. Specifically, we reviewed: (1) our 2005 audit report on the FBI’s efforts to hire, train, and retain intelligence analysts; (2) current analyst hiring requirements; (3) progress made toward meeting analyst hiring goals; (4) progress made toward establishing a comprehensive training program and meeting the training goals; (5) allocation and utilization of analysts to support the FBI’s mission; and (6) progress toward retaining analysts.

Scope and Methodology

The audit was performed in accordance with the Government Auditing Standards, and included tests and procedures necessary to accomplish the audit objectives. We conducted work at FBI Headquarters in Washington, DC, and four FBI field offices: New York, NY; Detroit, MI; Miami, FL; and Los Angeles, CA. In general, our audit data covered October 1, 2005, through August 31, 2006.

To conduct our audit, we interviewed FBI officials and a sample of 60 intelligence analysts and 16 supervisors in the offices we visited. The FBI officials interviewed were from the Directorate of Intelligence, the Counterterrorism, Counterintelligence, Criminal Investigative, and Cyber Divisions, as well as the Administrative Services, Training and Development, and Finance Divisions. In addition, we reviewed documents related to the budgeting, hiring, training, utilization and retention of intelligence analysts including various Concepts of Operations published by the Directorate of Intelligence, budget documentation, organizational structures, congressional testimony, and prior GAO and OIG reports.

To analyze how the FBI determines its requirements for intelligence analysts and allocates intelligence analysts, we examined the methodologies the FBI employed to determine the number of intelligence analysts needed, the number of additional analysts requested in the FBI’s FYs 2005 and 2006 budgets, and its current and future allocation of intelligence analysts. We accomplished this by examining Finance Division documents, reviewing the Threat Forecasting and Operational Requirements Concept of Operations Plan, and interviewing officials from the Directorate of Intelligence and the Finance and Administrative Services Divisions.

We interviewed officials from the Directorate of Intelligence about the automated application system now being used by the FBI. We also interviewed other FBI officials about the system previously used to hire intelligence analysts.

To determine the progress the FBI has made in providing introductory training to intelligence analysts, we examined curricula for the ACES 1, ACES 1.5, and Cohort courses, and attendance data for the three courses. We also interviewed officials from the Training and Development Division and the Intelligence Career Management Section in order to learn more about the hiring, training, retention, and selection practices for intelligence analysts. To obtain the perspective of intelligence analysts who have attended the ACES, ACES 1.5, and Cohort courses, we interviewed selected analysts in the field offices we visited. In addition, we questioned intelligence analysts on the topics covered by the courses, suggestions for improvement, and the courses’ ability to prepare intelligence analysts to do their jobs.

To determine how FBI intelligence analysts are being utilized, we interviewed intelligence analysts and their supervisors at FBI Headquarters and the four field offices we visited.

To determine the progress the FBI has made in retaining highly qualified and productive intelligence analysts, we examined the Human Talent CONOPS and attrition data. We also interviewed officials from the Directorate of Intelligence to obtain information about the latest retention initiatives. To determine whether FBI intelligence analysts plan to stay with the FBI, we included appropriate questions in our interviews.