Intelligence Community: Actions Needed to Improve Planning and Oversight of the Centers for Academic Excellence Program
The Centers for Academic Excellence is a federal grant program designed to encourage highly-qualified college students with diverse backgrounds to pursue careers at U.S. Intelligence Community entities like the CIA. From 2005-2018, 29 colleges received 46 grants totaling about $69 million.
The Intelligence Community doesn't know if the program is achieving its goal of increasing diversity in its applicant pool. In addition, Intelligence Community entities are unclear about their responsibilities in the program and need to improve their participation in the program.
We made 7 recommendations to address these and other issues.
Intelligence Community Centers for Academic Excellence: Minority Designation for the 29 Primary Grant Colleges (Fiscal years 2004 through 2018)
Pie chart showing 34% no minority designation; 66% minority designation; and the breakdown of the minority designation by type.
What GAO Found
The Defense Intelligence Agency (DIA) has not sufficiently planned and overseen the Intelligence Community (IC) Centers for Academic Excellence (CAE) program—intended to create an increased pool of culturally and ethnically diverse job applicants for the IC—after the program transitioned from the Office of the Director of National Intelligence (ODNI) to DIA in 2011. Specifically, DIA has not applied most of GAO's key practices of sound planning in overseeing the program (see table), thus challenging decision makers' ability to determine the program's return on investment.
Defense Intelligence Agency Application of Key Practices of Sound Planning
|
Key planning practice |
Application of key planning practice |
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Mission statement |
Maintained original program mission statement. |
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Results-oriented goals |
Did not establish results-oriented goals. |
|
Strategies to achieve goals |
Developed documentation and awarded grants, but did not document an overall strategy. |
|
External factors that could affect goals |
Identified some external factors, but did not develop a process to evaluate these factors. |
|
Use of performance measures to gauge progress |
Did not consistently define, collect, or report comprehensive performance measures. |
|
Evaluations of the plan to monitor goals and objectives |
Did not comprehensively assess the performance of colleges' programs or overall program success. |
Source: GAO analysis of Intelligence Community element documents and GAO key practices for sound planning. | GAO-19-529
Specifically, while DIA has developed some short-term goals and plans for the program, DIA has not established results-oriented program goals or an overall strategy that details the agency resources and processes required to achieve the program's mission. Similarly, DIA collected some data for the program and required colleges to provide reports on significant program accomplishments, but these data are not complete or reliable and have not been used to comprehensively evaluate the program's success. As oversight responsibility for the IC CAE program transitions back to ODNI in fiscal year 2020, ODNI will not be able to determine the extent to which the program has been successful in achieving its mission without establishing and documenting goals with targets and milestones; developing strategies to achieve those goals; and defining, collecting, and reporting comprehensive performance measures.
Selected IC elements are participating in the IC CAE program to varying degrees, but DIA has not established a process for monitoring and assessing IC elements' participation or clearly defining IC elements' role in the program. The IC CAE program is a collaborative effort that allows IC elements to participate in college events, such as IC CAE recruitment events. However, not all IC elements participate in the program. As IC CAE program manager, DIA has engaged with IC elements in a variety of ways, but this engagement has not resulted in consistent participation among the IC elements. Moreover, program documentation has not clearly defined IC elements' roles and responsibilities for participation. Without a process for monitoring and assessing IC elements' participation and clearly defining roles and responsibilities, ODNI will neither be able to identify reasons for the lack of IC element engagement nor ensure that IC elements are taking advantage of the IC CAE program and its goal of creating a diverse pool of applicants for the IC.
Why GAO Did This Study
A trusted, diverse workforce with the right expertise is critical to ensuring the IC achieves its mission of delivering distinctive, timely insights with clarity, objectivity, and independence. ODNI established the IC CAE program in 2005 to educate highly qualified students of diverse backgrounds and encourage them to pursue careers in the IC. ODNI and DIA have provided 29 colleges a total of 46 IC CAE grants through fiscal year 2018, totaling approximately $69 million through fiscal year 2021.
This report evaluates the extent to which (1) DIA has planned and overseen the IC CAE program since 2011 and (2) selected IC elements are participating in the IC CAE program and have clearly defined roles.
GAO reviewed IC CAE documentation related to DIA program planning and oversight from 2011 through 2019 and applied key practices of sound planning to evaluate DIA's management of the program. GAO interviewed selected IC elements and IC CAE college officials and reviewed related documentation to assess program planning and implementation.
Recommendations
GAO is making seven recommendations to the Director of National Intelligence, including that ODNI establish and document results-oriented goals and strategies for the IC CAE program; define, collect, and report comprehensive performance measures; and clearly define the roles and responsibilities of the IC elements for participation in the program. ODNI concurred with the recommendations but did not identify steps it plans to take to implement them.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Office of the Director of National Intelligence | The Director of National Intelligence should establish and document results-oriented goals that include specific targets or milestones for the IC CAE program. (Recommendation 1) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that in preparation for the transition of the Intelligence Community Centers for Academic Excellence (IC CAE) program from the Defense Intelligence Agency to ODNI, the ODNI commissioned an independent study to assess program performance and barriers to success. ODNI noted that this study, in conjunction with the GAO report, would inform the development of a program strategy and sound business practices that would prescribe goals and measurable objectives. These efforts were expected to be completed in late 2020, at which time ODNI planned to develop a companion Strategic Implementation Plan that would set the foundation for behavior and reporting criteria across all IC CAE grant-receiving institutions, legacy schools, and stakeholders. ODNI noted that the plan, which was expected to be completed in the third quarter of fiscal year 2021, would include an annual evaluation process linked to survey results and documented lessons learned. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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| Office of the Director of National Intelligence | The Director of National Intelligence should establish and document strategies to achieve the results-oriented goals that are established for the IC CAE program. (Recommendation 2) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that in preparation for the transition of the Intelligence Community Centers for Academic Excellence (IC CAE) program from the Defense Intelligence Agency to ODNI, the ODNI commissioned an independent study to assess program performance and barriers to success. ODNI noted that this study, in conjunction with the GAO report, would inform the development of a program strategy and sound business practices that would prescribe goals and measurable objectives. These efforts were expected to be completed in late 2020, at which time ODNI planned to develop a companion Strategic Implementation Plan that would set the foundation for behavior and reporting criteria across all IC CAE grant-receiving institutions, legacy schools, and stakeholders. ODNI noted that the plan, which was expected to be completed in the third quarter of fiscal year 2021, would include an annual evaluation process linked to survey results and documented lessons learned. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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| Office of the Director of National Intelligence | The Director of National Intelligence should develop and document a process to identify and continuously evaluate external factors that could affect the program's ability to achieve identified goals. This should include, but not be limited to, a consideration of program branding and post-grant sustainment. (Recommendation 3) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that in preparation for the transition of the Intelligence Community Centers for Academic Excellence (IC CAE) program from the Defense Intelligence Agency to ODNI, the ODNI commissioned an independent study to assess program performance and barriers to success. ODNI noted that this study, in conjunction with the GAO report, would inform the development of a program strategy and sound business practices that would prescribe goals and measurable objectives. These efforts were expected to be completed in late 2020, at which time ODNI planned to develop a companion Strategic Implementation Plan that would set the foundation for behavior and reporting criteria across all IC CAE grant-receiving institutions, legacy schools, and stakeholders. ODNI noted that the plan, which was expected to be completed in the third quarter of fiscal year 2021, would include an annual evaluation process linked to survey results and documented lessons learned. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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| Office of the Director of National Intelligence | The Director of National Intelligence should define and document comprehensive performance measures for the IC CAE program, collect and evaluate the completeness and reliability of information it receives from grant recipients and IC elements, and report this information on a regular basis. (Recommendation 4) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that it held virtual listening session in early fiscal year 2020 with Intelligence Community Centers for Academic Excellence (IC CAE) program managers and principal investigators to inform the development of meaningful performance measures and reporting criteria. ODNI noted that the criteria was collected using standardized, repeatable processes to ensure both accuracy and completeness during site visits and performance reviews for active grant recipients. ODNI further noted that it planned to integrate the criteria from the listening sessions into the Strategic Implementation Plan, which it expected to complete in the third quarter of fiscal year 2021. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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| Office of the Director of National Intelligence | The Director of National Intelligence should establish a requirement for and develop a plan to periodically evaluate the IC CAE program's performance through objective measurement and systematic analysis. (Recommendation 5) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that it held virtual listening session in early fiscal year 2020 with Intelligence Community Centers for Academic Excellence (IC CAE) program managers and principal investigators to inform the development of meaningful performance measures and reporting criteria. ODNI noted that the criteria was collected using standardized, repeatable processes to ensure both accuracy and completeness during site visits and performance reviews for active grant recipients. ODNI further noted that it planned to integrate the criteria from the listening sessions into the Strategic Implementation Plan, which it expected to complete in the third quarter of fiscal year 2021. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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| Office of the Director of National Intelligence | The Director of National Intelligence should develop a process for assessing why some IC elements are not participating in the IC CAE program and address these reasons in order to ensure the program is structured to meet the needs of IC elements. (Recommendation 6) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that was in the process of developing an engagement strategy for the reintegration of Intelligence Community Centers for Academic Excellence (IC CAE) legacy schools to ensure prior investments are capitalized on and to maximize outreach efforts. ODNI also noted that it was routinely leveraging multiple interagency IC-wide working groups to engage with IC elements and stakeholders to increase its understanding of barriers to engaging with IC CAE, as well as to develop a community-wide understanding of the benefits associated with engagement. At that time, ODNI noted that it planned to include the results in the Strategic Implementation Plan, which it expected to complete in the third quarter of fiscal year 2021, and noted that it would routinely update these efforts to ensure best practices are being implemented. The ODNI stated that it would use this ongoing process and dialogue to assess and seek to address such barriers and to improve ongoing IC element participation. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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| Office of the Director of National Intelligence | The Director of National Intelligence should clearly define IC elements' roles and responsibilities for participation in the IC CAE program to better facilitate interagency collaboration in support of the program. (Recommendation 7) |
The Office of the Director of National Intelligence (ODNI) concurred with this recommendation. In its August 2020 response, ODNI noted that it was leveraging multiple interagency forums in an effort to improve IC element participation in the IC CAE program. ODNI also noted that it would encourage the standardization and use of common practices by leveraging IC CAE schools for recruitment and hiring within diverse communities. Together, ODNI noted that it would use input from these efforts to shape a collaborative way ahead for increased and improved IC engagement based on community roles and responsibilities. These efforts would also be integrated into the program's Strategic Implementation Plan, which was expected to be completed in late 2021. However, as of September 2022, ODNI had not provided an update on the status of these or other efforts taken to respond to this recommendation. As such, we will continue to monitor the status of this recommendation.
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