An Innovative Proposal to the Drug Enforcement Administration’s Training and Professional Development Program

© Kenneth WasleyMPA 699

Professor Roy MerolliDecember 12, 2014

Graduate Degree Requirement for the Position of Supervisory Special Agent with the Drug Enforcement Administration

© Kenneth WasleyMPA 699

Professor Roy MerolliDecember 12, 2014

Abstract

The Drug Enforcement Administration, hereinafter referred to as the DEA, is a professional federal law enforcement agency responsible for the enforcement of the Controlled Substance Act, hereinafter referred to as CSA, of the United States. The DEA accomplishes its mission through the investigation of drug trafficking organizations, state and federal prosecution of those violating narcotics related offenses, pursuing civil asset forfeiture against those prosecuted for money laundering, and the investigation and prosecution of those involved in narco-terrorism.

The DEA is responsible to internal and external key stakeholders relative to the success of the agency meeting the needs of polis and achieving public value. The way in which the DEA must meet the needs of society is through the promotion of competent supervisory special agents. These supervisors are responsible for effectively managing law enforcement groups to pursue leaders in drug trafficking organizations for prosecution in state and federal courts.

In the attached proposal, a research study has been created and tailored specifically for the DEA in which to modify the preexisting promotion policy relative to the education requirement for the position of supervisory special agent. The DEA continues to make great strides in the advancement of criminal investigation techniques, however, has not changed the way in which it promotes its personnel to supervisory positions for decades.

This proposal provides a blueprint for the DEA to make necessary changes to the supervisory promotion policy requiring graduate degrees with studies in public management. The content of this research is grounded by theoreticians in classic public administration.

“The United States Drug Enforcement Administration, Tough Work, Vital Mission”1

1 Retrieved from: www.DEA.gov

III

Table of ContentsIntroduction: Abstract III

Chapter 1 Introduction/Program Overview:Statement of the Problem 1Innovation and Organization 2Bryson’s ABC’s of Strategic Planning 3Feasibility of the Innovative Proposal 9Strategy of Implementation 10Advocates of Proposed Innovation 12Opponents of Proposed Innovation 13Conclusion 13

Chapter 2 Literature Review:Open-System Principle in Organizational Theory 15Frederick W. Taylor: Scientific Management 16Herbert Simon’s Procedural Rationality Principle 18Mary Parker Follett’s Social Process Principle 18 Transformational Leadership 21Conclusion 22

Chapter 3 Strategic Analysis:Initial Agreement and Stakeholder Analysis 24DEA’s Mission, Mandates and Vision 25Environmental Scan (SWOT) Internal Assessment – Strengths 28Internal Assessment- Weaknesses 29External Assessment- External Opportunities 30External Assessment – External Challenges 30Organizational Impact of Innovation 31 Conclusion 32

Chapter 4 Implementation:Need for Proposed Innovation 34Project Implementation – Key Personnel 36Opponents 37Funding 37 Timeline 39Project/Process Assessment 40 Conclusion 41

Chapter 5 Conclusion: Research/Strategic Analysis of the Organization 45Innovation Leads to Dramatic/Positive Change in the Organization 45Innovation Capitalizes on Current Strengths in the Organization 46

IV

Innovation Addresses Major Weakness in the Organization 47Table of Contents

Chapter 5 Conclusion continued : Program Evaluation 47Appraisal of Program Support 49Funding 50Timeline 50Additional Research 51 Likelihood of Proposed Innovation Implemented 51Conclusion 52 AppendicesAppendix A. DEA Organizational Chart 53

ReferencesReferences cited 54-55

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CHAPTER 1-INTRODUCTION

The program innovation proposed for the Drug Enforcement Administration, hereinafter

referred to as the DEA, is to require all supervisory special agents to possess a graduate degree

that includes, among other things, studies in public management from accredited academic

institutions. The purpose for the increased education requirement is for the DEA to promote

competent supervisory special agents to effectively guide, manage and inspire narcotics and

money laundering enforcement teams that serve domestic and international communities.

Statement of the Problem

The purpose for the new education requirement is for the DEA to promote competent

supervisory special agents to effectively perform as knowledgeable leaders within community

outreach programs designated for high-risk areas. These high-risk areas deserve the DEA’s drug

impact programs in order to address and promote public value. Key stakeholders in society can

objectively view the work of the DEA, and other law enforcement agencies, through public

value. “From their perspective it is government, acting though its managers, that shields the

country from foreign enemies, keeps the streets safe and clean, educates the children, and

insulates citizens from many man-made and natural disasters that have impoverished the lives of

previous human generations.”2

In other words, society can easily recognize when the government, or in this instance the

DEA, is effective in the mission of drug enforcement. Street level narcotics distributors can be

observed in any impoverished inner city. As these distribution networks begin to vanish,

combined with news reports of drug enforcement by law enforcement agencies, citizens and key

2 Mark Moore (1997) Creating public value, chapter 2 p. 29)

1

community stakeholders would expect that competent supervisors were leading enforcement

initiatives.

Innovation and the Organization

The DEA’s mission is to enforce the Controlled Substance Act, hereinafter referred to as

CSA, of the United States. The DEA accomplishes its mission through the investigation of

domestic and international drug trafficking organizations, state and federal prosecutions of those

violating narcotics offenses, pursuing civil asset forfeiture against those prosecuted for money

laundering, and the investigation and prosecution of those involved in narco-terrorism.

The organizational problem this capping paper will address is an education requirement

for all new supervisory special agents. At this time, the DEA does not require supervisory

special agents to possess a graduate degree; however, the DEA provides a 4 week in-house

training at the DEA training academy in Quantico, VA covering such topics as public

management. This training is provided via professors from the University of Virginia.

The DEA also reimburses incumbent supervisory special agents up to 50% of the cost of

continuing education to achieve a graduate degree or higher. The DEA fully understands the

value of an education and has recognized the importance of graduate degrees to further the

mission of the agency and enhances public value. The current process and in-service training is

readily viewed by subordinates as inadequate because more often than not new supervisors either

arrive at groups as coercive leaders or serve as “country club” managers. Moreover, some new

supervisory special agents possess few interpersonal skills, poor written and verbal

communication skills, and a lack of empathy for the community in which they serve.

2

As a public and professional law enforcement agency, the DEA must be held accountable

to key stakeholders. “Examples of a government’s stakeholders are citizens, taxpayers, service

recipients, the governing body, employees, unions, interest groups, political parties, the financial

community, other businesses, and other governments.”3 Moreover, the DEA is also accountable

to community leaders and their constituents in the pursuit of public safety, along with the

promotion and protection of public value. Accountability of the DEA to the aforementioned

stakeholders attempts to ensure that federal budgetary resources are effectively expended to

promote and protect public value.

Bryson’s ABC’s Of Strategic Planning

A. Where You Are

As in any other public organization, the DEA must also be held accountable for its

mission of drug enforcement throughout the world. In 2014, the DEA was compromised of

11,025 personnel. Of the 11,025, “5,234 are special agents, and 5,791 are support staff” with an

annual operating budget of “$2,867,000,000.”4

This proposed innovation is a program that focuses on the current DEA’s supervisory

special agent development and training program. In an audit performed in 1995, the DEA

identified deficiencies in the development and training program that addressed necessary training

and education requirements; however, the audit had fallen short in the requirement of graduate

degrees that includes studies in public management.

The DEA currently has in place the methods and means for those to achieve graduate

degrees; however, that program is only in place for those who currently hold the position of 3 John Bryson The strategy change cycle: an effective strategic planning approach p. 354 Retrieved from: www.justice.gov/dea/about/history/staffing.shtml

3

supervisory special agent and is strictly voluntary. The DEA, therefore, currently promotes

personnel based upon minimum criteria that most senior special agents will pass. Furthermore,

the assessment panel also adds subjective value to the assessment with respect to one’s ability to

lead and manage an enforcement group. The subjective side of the assessment is failing the

agency because some personnel promoted were never qualified to be effective supervisors in the

first place.

Ineffective supervisors destroy morale which negatively impacts public value, which is to

say that the mission of drug enforcement is not accomplished through that specific group. The

DEA counters problematic probationary supervisors with significant punitive penalties, such as

being transferred to non-enforcement groups, suspension, demotion, and if necessary removed

from the agency. Promoting qualified supervisory special agents that are in compliance with this

proposed innovation would most certainly minimize exposure to punitive penalties for

incompetence.

The DEA recognizes the fact that some education requirements for the position of

supervisory special agents are difficult to teach through in-house training to those that do not

have advanced degrees. “Achieving significant, additional improvements in the quality of one’s

thinking skills appear to require high levels of motivation and concentrated study and practice.”5

In other words, one achieves concentrated study and sharpens critical thinking skills, along with

effective verbal and written skills, through studying and practice in graduate degree programs.

B. Where You Want To Be

5 Drug Enforcement Administration (2003) Training and Professional Development for Grade 14 p.2

4

Through this proposed innovation, an agent applying for the position of supervisory

special agent who possesses a graduate degree that included studies in public management will

have a sound foundation in which to build DEA protocols and organizational guidelines. The

graduate degree is certainly not a panacea to becoming a successful supervisory special agent;

however, having completed advanced studies provides one with the abilities of critical thinking

and problem solving, along with sound verbal and written communication skills.

Studies in public management are augmented by in-service training to help supervisory

special agents to become more effective in executing the mission of the DEA. As discussed, a

supervisory special agent and subordinate agents are the first line of defense in the war on drugs.

It would be most unfortunate for society to be on the losing end of the war on drugs because of

incompetent supervisory special agents.

C. How To Get There

This innovative proposal can be achieved through the process of strategic management.

“The overall purpose of strategic management is to develop a continuing commitment to

the mission and vision of the organization (both internally and in the authorizing

environment), nurture a culture that identifies and supports the mission and vision, and

maintain a clear focus on the organization’s strategic agenda throughout all its decision

processes and activities.”6

In other words, Bryson suggests that an organization must remain in compliance with its

stated mission as the organization continues to evolve to meet the needs of its stakeholders.

Through compliance with the stated mission, the organization must continue to cultivate

6 Bryson, p. 31

5

organizational principles in an effort to achieve continued support of decisions intended to

advance the organization. If an organization does not have support from its greatest resource, the

organization’s personnel, the process and implementation of strategic management will fail.

With respect to the process and implementation of strategic management in the DEA,

there is a historical context for the problem of not requiring graduate degrees with studies in

public management. The DEA recognizes the fact that the four-week in-service training is not

necessarily enough for one to fully develop into an effective supervisory special agent which

further justifies 50% tuition reimbursement program for graduate degrees. However, based upon

the fact that the DEA has developed supervisory special agents through assessment teams since

the creation of the DEA in July of 1973, via its predecessor known as the United States Bureau

of Narcotics and Dangerous Drugs, hereinafter identified as (BNDD), the promotion program has

undergone very few changes.

The continued approach of doing business as usual has negatively impacted the

organization to the extent that the training and professional development of supervisory special

agents has been ineffective. The DEA, like any other public organizations, cannot continue to

promote “friends” within the organization dismissing necessary academic and training

requirements. The historical context of this problem continues because most managers within

the DEA from the top-down do not have advanced degrees and manage from limited in-house

training and work experience. This proposed innovation has the ability to break through this

cycle and bring the DEA into the twenty-first century.

Pursuant to the DEA’s “Training and Professional Development for Grade 14 Special

Agents,” the literature sets forth all current policy requirements for the promotion program. The

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current policy was implemented by the DEA Administrator in 2003, along with other top level

administrators and human resource personnel, which is the agency’s proprietary governing

literature for the supervisory special agent promotion program. Therefore, as the current

guidelines suggest, a graduate degree is not required for the promotion to supervisory special

agent; however, there is an organized training platform designed to provide one with a minimum

amount of supervisory training and encourage study for advanced degrees.

In light of the fact that the DEA’s proprietary governing literature was written, enacted

and adopted by the administration of the DEA, necessary changes, to include education

requirements, could be adopted by the same governing body without constitutional or legal

consequences. There is nothing discriminatory about this proposed innovation, however, does

encourage applicants to have had studied in, among other things, public management in graduate

programs for the benefit and success of DEA. This proposed innovation should be viewed

through the lenses of organization theory. “The primary questions for organization theory

involve how best to design and manage organizations so that they achieve their declared

purposes effectively and efficiently.”7

With respect to the training and development program of supervisory special agents, the

DEA has evaluated the program in an attempt to develop professional leaders with high moral

and ethical characteristics who are able to meet the mission and goals of the agency and society.

Through the evaluation, the DEA understands that the best personnel for promotion are those

with a sound education in management; however, this understanding attempts to bridge the gap

with only a four week in-service training period.

7 Jay M. Shafritz and Albert C. Hyde ( 2012) Classics of public administration Massachusetts: Wadsworth, p. 490

7

It is impossible to train anyone to be an effective leader in only four weeks especially

considering that some personnel promoted have no managerial training in the first place.

Therefore, one must consider changing the organization culture from the top-down for the

adoption of this innovation program. As discussed, this is not as challenging as one might expect

because of the current education infrastructure currently in place that supports management

graduate programs.

“Some writers, including Davis (1984), postulate that dominant, charismatic,

organizational founders and chief executive officers are the primary sources, transmitters, and

maintainers of organization cultures.”8 The chief executive of the DEA is known as the

Administrator, who is responsible for crafting the agency’s culture along with the

implementation of employment guidelines and mission delivery to the polis.

The proposed initiative for the requirement of graduate degrees for all new supervisory

special agents is innovative because it has yet to be implemented but is extremely critical to the

mission of the agency and to society in which the DEA serves. As a result of the audit

performed in 1995, the DEA has implemented advanced in-service professional academic

training and a 50% tuition reimbursement program for advanced degrees. The DEA is also

aligned with academic institutions throughout the world that offers reduced tuition to law

enforcement personnel for professional development.

The deficiencies noted and corrected subsequent to the 1995 study have established the

framework in which to require graduate degrees for supervisory special agents. The recruitment

processes also caters to those with graduate degrees, and higher, with generous entry level pay

8 p. 493

8

scales pursuant to the matrix of the Office of Personnel Management, General Pay Schedule.

Since 1995, the DEA has developed an updated training strategy.

[The] “DEA’s training strategy concentrates on curricula development, leadership

development, and faculty and staff development.”9 However, as discussed the DEA is failing to

require graduate degrees with an academic background in public management which is a

disservice to the agency, subordinates in enforcement groups and communities the agency

serves.

Feasibility

The feasibility of this innovation to training and professional development of new

supervisory special agents requiring graduate degrees is absolutely achievable. The DEA

already has in place the requirement for all new hires to have at least a bachelor’s degree and the

infrastructure for current supervisory special agents to achieve graduate degrees. The DEA also

utilizes an in-house training program delivered by professors with the University of Virginia that

provides a condensed version of a practical graduate management program.

The DEA recognizes the fact that higher education not only furthers the mission of the

agency but also continues to promote professionalism, ethics, institutional morale, and effective

community outreach to combat the growing concerns of narcotics enforcement. The DEA also

encourages its applicants for the position of entry level special agents to possess graduate

degrees or higher and further compensates those applicants with a higher entry level pay scale.

This hiring process promotes a pool of educated personnel that in all likelihood will one day

strive to become supervisory special agents thereby achieving this proposed innovation.

9 Drug Enforcement Administration (2003) Training and Professional Development Guide for Grade 14 p. 5

9

The DEA has provided most of the necessary resources and tools for incumbent

supervisory special agents to develop into effective leaders. The DEA would need to budget

more financial resources to adopt this proposed innovation to provide continuing education to

non-supervisory special agents. Even though incumbent supervisors would be exempt from this

innovation, they would still be encouraged to continue their education to be aligned with the new

supervisory special agents meeting the education requirement.

Strategy of Implementation

The strategy implementation for the aforementioned innovation is just as important as

strategic planning and development. “Strategy is the creation of a unique and valuable position,

involving a different set of activities.”10 The DEA will certainly set itself apart from other

federal law enforcement agencies through the adoption of this innovation proposal. The DEA

will also position itself as a leader in the federal law enforcement community as represented

through educated and well trained supervisory special agents.

The strategy implementation phase is where the organization adopts the innovation and

carefully monitors the programs progress. “The organization must build into action plans

enough sponsors, champions, and other personnel – along with enough time, money, attention,

administrative and support services, and other resources – to ensure successful

implementation.”11 In other words, if an organization fails to support an innovation, the proposed

program can guarantee failure.

The strategy implementation for the DEA to implement the graduate degree requirement

that included studies in public management would take the agency at least one to three years to

10 Michael Porter (1996) What is strategy Harvard Business Review November-December 1996, p. 68 11 Bryson, p. 51

10

adopt. The reason for the suggested time period is that most of upper management, including the

DEA Administrator, will be eligible for retirement. As discussed, most of the current upper

management do not hold advanced degrees beyond a bachelor’s degree and have, for the most

part, received in-service management training to continue the mission of the DEA.

The management path for supervisory special agents is for continued upward mobility in

the DEA, to which these individuals will one day become policy planners, program analysts, and

seek support for policy and program implementation. Since the DEA has an academic

infrastructure currently in place for supervisory special agents to earn graduate degrees with

studies in public management, the administration would need to adopt this proposed innovation

to mandate the new education requirement.

As discussed, this proposed innovation does not negatively impact incumbent supervisory

special agents. The new education requirement would not necessarily preclude a large number

of supervisory special agent applicants because there have been a fair amount of recent hires for

entry level special agent positions that already have graduate degrees or higher. The DEA

should not compromise its mission or promote mediocre personnel just for the sake of filling

supervisory vacancies. Those committed to the mission of the DEA and public service must

understand and accept the challenges set forth by the agency for the promotion of competent and

professional supervisory special agents.

The strategic implementation of this proposed innovation would be sponsored by a

committee to share the responsibility in the decision-making ability. The committee would be

compromised of the DEA Administrator; the Deputy Administrator; the Office of Executive

Equal Opportunity and Employee Assistance Division; the Executive Policy and Strategic

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Planning Division; the Office of Chief Counsel; the Human Resources Division, and the

Financial Management Division.

“Because so many more people and groups need to be involved and because

implementation has to rely more on consent than authority, the process is likely to be much more

time consuming and iterative than strategic planning applied to an organization.”12 Having all

necessary administrative divisions involved in the decision-making ability ensures employment

fairness, compliance with federally mandated labor laws, and legal review of the program.

Advocates of this Proposed Innovation

This strategy implementation will require the promotion of new supervisors that possess

applicable graduate degrees to support this proposed innovation. As discussed in Bryson’s

article, should an organization not provide full support of an innovation, the innovation strategy

implementation will fail. Therefore, advocates for this proposed innovation are supervisors that

possess graduate degrees that have also included some basic academic studies in public

management.

These individuals are also more adept in critical thinking with effective verbal and

written communication required for the position of supervisory special agents. Moreover, these

individuals further understand the discipline and determination required to earn a graduate

degree. As the DEA continues to promote supervisory special agents over the next few years,

the organization will have in place more educated and professional supervisors from a pool of

applicants that currently hold graduate degrees that supports this innovation proposal.

Opponents of this Proposed Innovation

12 p. 58

12

Opponents of this innovation proposal would be those that do not possess graduate

degrees or any other type of advanced degrees. These individuals are supervisors that manage

their groups through relationships and not through any form of classic public administration

theories. These are also individuals that would feel insecure working with educated supervisory

special agents.

Therefore, those that may feel insecure or inadequate compared to the new generation of

supervisory special agents would not support this proposed innovation. Moreover, these

individuals would not require anything more than the education and training that they had

received, which will continue to negatively impact the DEA. An organization must continue to

evolve to successfully support and execute its mission.

Conclusion

The innovative proposal for the education requirement for supervisory special agents is

critical for the development of sound organizational leaders, along with the success and future of

the DEA. The DEA is assigned a vital mission, which is to serve domestic and international

communities in global narcotics enforcement. The mission of the DEA cannot be accomplished

without professional and academically trained leaders to guide law enforcement personnel for

successful drug enforcement initiatives.

This proposal is further supported by such classic theorists of public administration as

Daniel Katz, Robert L. Kahn, Frederick W. Taylor, Herbert Simon, and Mary Parker Follett.

These classic theorists developed frameworks in which organizations are to operate and

effectively supervise personnel to maximize productivity and organizational harmony.

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CHAPTER 2 – LITERATURE REVIEW

The literature review relative to the aforementioned innovation proposal is supported by

classic administration theoreticians, such as Daniel Katz, Robert L. Kahn’s principle of open-

system theory; Frederick W. Taylors’ principle of strategic management; Herbert Simon’s

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principle of rationality; Mary Parker Follett’s principle of social process; along with the concept

of transformational leadership.

Open-System Principle in Organizational Theory

The proposed innovation for the requirement of graduate degrees that include studies in

public management is categorized under the open-system principle in organizational theory, as

suggested by theoreticians Daniel Katz and Robert L. Kahn. “The open-system approach, on the

other hand, begins by identifying and mapping the repeated cycles of input, transformation,

output, and renewed input which comprise the organization pattern.”13

In other words, through internal and external stakeholders the DEA receives information

for suggested organizational changes in an effort to transform, among other things, agency

programs. In this instance, the open-system principle is applicable to the training and

development program of supervisory special agents. With the internal and external inputs, the

agency develops outputs in response to requested organizational changes. Through this

innovation, or repeated cycles of input, the agency’s transformation of the training and

development program leads to the adoption of the aforementioned education requirements.

Through continued input on the training and development program, the agency will be

positioned to continue to measure outcomes of the program changes to ensure fit and compliance

with the agency’s mission. The purpose of the education requirement for new supervisory

special agents is the promotion and development of effective supervisors, maintain agency

professionalism, along with increasing institutional morale. “Social organizations are flagrantly

open systems in that the input of energies and the conversion of output into further energic input

13 Shafritz and Hyde, p. 195

15

consist of transactions between the organization and its environment.”14

The DEA receives input from stakeholders in an effort to continue to evolve as a

professional federal agency in the continued pursuit of meeting the needs of society and the

promotion of public value. “Organizational leaders must be able to unify individuals, resolve

conflict, demand performance, and delegate authority without dehumanizing an individual.”15

Frederick W. Taylor’s Scientific Management Principle

Theoretician Frederick W. Taylor also suggests through scientific management, under the

organizational theory discipline, management must create and sustain harmony between the

employer and employees. Scientific management further suggests that employers incentivize

their workforce for the most available output an organization can produce. Taylor further

suggests that through scientific management, employers gain loyalty and respect from their

employees on a regular basis through the incentivized approach.

“The first great advantage which scientific management has over the management of

initiative and incentive is that under scientific management the initiative of the workmen

– that is their hard work, their good will, their ingenuity – is obtained practically with

absolute regularity, while under even the best of the older type of management this

initiative is only obtained spasmodically and somewhat irregularly.”16

Taylor’s approach to scientific management is applicable to the innovative program of the

14 p. 18715 Marc Holzer and Richard Schwester (2011) Public administration: an introduction New York: M.E. Sharp Incorporated, p. 63 16 Shafritz and Hyde, p. 37

16

DEA’s new education requirements for supervisory special agents through the concept of

incentivizing its employees. The DEA does apply the scientific management principle to its

personnel through a very generous pay scale to supervisory special agents and tuition

reimbursement programs to incumbent supervisors. The application of scientific management

combined with the requirement for graduate degrees for supervisory special agents provides

contemporary tools for sound organizational leadership. Working towards the elimination of

coercive and “country club” leadership will lead to better treatment of employees, along with

unfettered loyalty that will transcend the mission of the DEA.

Through the concept of scientific management, the supervisory special agent has the

authority to further incentivize subordinates through the authorization of holiday pay, night

differential, and cash awards for outstanding case development. Therefore, through Taylor’s

scientific management, as applied to the DEA, the concept would absolutely promote

subordinate’s loyalty to the agency and a fair amount of deference to the supervisory special

agent.

The achievement of successful results through scientific management will only be

accomplished through the promotion of competent supervisory special agents that meet the

aforementioned education requirements. The graduate degree combined with studies in public

management are critical to the DEA’s mission, fair treatment of its subordinates, the execution

of the agency’s duties and responsibilities to its stakeholders.

Herbert Simon’s Procedural Rationality Principle

In journal article “Rationality in Administrative Behavior: Simon, Science, and Public

Administration,” theoretician Herbert Simon suggests that through procedural rationality,

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organizations are already adaptive to contemporary decision-making with respect to

implementing necessary organizational changes to remain congruent with the needs of society.

“Behavior is procedurally rational when it is the outcome of appropriate deliberation.”17 This

thought dovetails into the current academic infrastructure that the DEA currently has in place.

The DEA has recognized the fact that a strong organizational leader cannot be developed

in a brief in-house training session or teach the skills for critical thinking and problem solving.

The result is access to graduate programs through tuition reimbursements and discounted

academic programs that currently remain on a voluntary basis. The procedural rational,

therefore, is the DEA’s administration decision to adopt the proposed innovation for the achieved

outcome, which in this case is public value.

Mary Parker Follett’s Social Process Principle

With respect to the social process, or circular response, in her journal article “Prophet of

Participation: Mary Parker Follett and Public Participation in Public Administration,” Mary

Parker Follett suggests that human behavior reacts to environmental cues of society. Follett

suggests “[h]uman activity is in response to a changing environment…which is changing

because of the activity between it and me.”18 In other words, personnel with the DEA continue

to evolve with respect to the methods and means of drug enforcement as drug trafficking

organizations continue to evolve.

Drug trafficking organizations attempt ingenious ways to import narcotics from source

countries, such as South America, in to metropolitan cities in the United States. The DEA must

17 Robert Bartlett (1988) Rationality in administrative behavior: Simon, science, and public administration Purdue University, Fall 1988, p. 30818 Ricardo Morse (2006) Prophet of participation: Mary Parker Follett and public participation in public administration Vol. 28, No. 1, 2006: 1032 Iowa State University, p. 5

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continue to learn the new methods, means and techniques of drug traffickers in an effort to be

effective in drug enforcement. The way in which the DEA will remain effective is through the

promotion and advancement of competent supervisory special agents.

The supervisory special agent is a critical position to narcotics and money laundering

investigating groups. The supervisory special agent is responsible for directing investigators in

the development of case work that impacts local and international communities. It is the

supervisory special agent that learns their areas of responsibility in an effort to assemble a team

of investigators to pursue the illegal activity that plague society.

Follett’s theory of social process will remain ineffective should the DEA continue to do

business as it has since its adoption in 1973. Basic assessment teams that have no more

education than the current applicants for supervisory special agents are failing the agency. The

agency appears to be more concerned with promoting “friends” than competent special agents

that have professional and academic training in leadership. As a result of incompetent

leadership, the DEA’s attempt of promoting public value will be ineffective.

Follett further suggests the significance of individual ingenuity. Organizations cannot be

as effective without combining or unifying differences amongst its personnel, or in this instance,

leaders. “She uses the analogy of a piano, where a single key’s value is not in its being 1/56 of

all the notes, but in its infinite relations to all the other notes.”19 The point Follett is making is

that even if only one individual fails, it will negatively impact the rest of the organization.

One can view an enforcement group as a piano which is heavily dependent upon all

investigators and their supervisory special agent to work together in harmony, as also suggested

19 p. 6

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by Frederick W. Taylor. An effective enforcement group is also responsible for working with

other local, regional and international enforcement groups and counterparts to achieve a unified

approach to drug enforcement. Each supervisory special agent and their subordinates are part of

one large organization, or a piano as Follett describes, that is reliant upon other enforcement

groups to achieve domestic and international public value.

The breakdown of the organization will have a domino effect should any one member of

an enforcement group fail to accomplish the agency’s mission. The weak link identified is the

current position of supervisory special agent. The supervisor is responsible for working and

guiding enforcement activities with other enforcement groups for a unified approach to drug

enforcement.

Supervisory special agents must unify personnel from varied backgrounds and culture to

work in a collaborative environment to achieve the mission and goals of the agency. Should the

leadership fail any enforcement group, that group will fail society and impede public value. This

is not to say that drug enforcement will not be accomplished; however, it does mean that an

ineffective enforcement group will not strengthen the resolve of the agency’s mission and

weaken the global defense of drug enforcement.

Transformational Leadership

In the journal article “Transformational Leadership Behavior in Public Sector

Organizations”, the author suggests that there is a direct correlation between effective

transformational leadership with successful leadership assessment, and measurable outcomes of

the organization’s leadership. Transformational leadership sums up the importance of promoting

competent supervisory special agents.

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“Transformational leaders show superior levels of commitment towards producing

change, retain substantial power to realize ground-breaking change, should demonstrate a

capacity to recognize the need for change, require a vision in order to enact change,

should espouse high moral and ethical values, must possess strong intellectual

capabilities, and should frame their message in significant ways in order to inspire

followers, stimulating increased autonomy and independence amongst them (the

development of close relationships between transformational leaders and followers is

decisive to produce relevant changes.”20

Transformational leaders have a tremendous responsibility to an organization to further

its mission by promoting critical thinking and decision-making abilities. They must also be

ambitious and enthusiastic to effectively promote the mission and values of the agency. The

transformation leader, therefore, is one that is developed as a result of the organizational culture

and one’s employment experience combined with advanced studies in graduate degree programs.

Graduate programs assist students in the development and practice of critical thinking, along

with analytical decision-making abilities necessary for successful leaders. In contrast, an

organization cannot expect its mission, values and goals to be pursued by personnel that do not

have the necessary education and training to be an effective leader.

An applicant for the supervisory special agent positions that only possess a bachelor

degree combined with criminal investigation experience does not bridge the gap from

investigator to supervisory special agent. The limited formal training that the DEA provides

further fails to meet the qualifications of a transformational leader. However, a transformational

leader can be developed through an organization that has adopted appropriate and applicable 20 Daniel P. Ljungholm (2014) Transformational leadership behavior in public sector organizations Vol. 6(1), 2014 pp. 76-81, ISSN 1948-9137 University of Pitesti, Romania, p. 77

21

advanced education requirements in an effort to capture qualified supervisory candidates.

Conclusion

The DEA currently has in place an appropriate and applicable academic infrastructure for

incumbent supervisory special agents to achieve graduate degrees on a voluntary basis. Pursuant

to the proprietary literature of the training and development program, the DEA admits that some

skills cannot be taught through their in-service training. Of the skills that cannot be taught, the

DEA has identified at least two areas of great importance: critical thinking and analytical

decision-making skills.

The DEA must recognize the fact that public value is jeopardized as a result of failing to

increase necessary academic requirements for the promotion of competent supervisors. The

work of the DEA will continue to be accomplished by dedicated personnel despite ineffective

supervisors; however, the mission and goals of the agency will not be fulfilled through the

continued approach of promoting inadequate leadership. The DEA must transform its current

training and development program through strategic analysis to remain consistent with the

mission of global drug enforcement, promotion of institutional morale, along with effective

leadership of the organization’s personnel.

22

CHAPTER 3- STRATEGIC ANALYIS

The DEA is a professional federal agency managed and guided by the DEA

Administrator, who is assigned to the DEA’s headquarters in Washington, D.C. It is from the

office of the Administrator, and administrative cabinet, to ensure that the mission of the DEA is

accomplished throughout the world. The DEA must further ensure that the needs of key

stakeholders are being met through the promotion of public value.

The office of the Administrator is further responsible for ensuring compliance with

respect to human resource policies and practices relative to the assessments and appointments of

23

supervisory special agents that are placed in domestic and international field offices. The DEA

is responsible to a fair amount of internal and external stakeholders, through the office of the

administrator, relative to successfully fulfilling the mission of global drug enforcement and

adhering to the DEA’s mission statement.

Initial Agreement and Stakeholder Analysis

“Each year the Administrator and key staff members develop a comprehensive strategic

plan for achieving the DEA’s mission.”21 The key staff members involved in this comprehensive

strategic plan is the Administrator and members of the Senior Executive Service, hereinafter

referred to as SES. This administrative team is responsible for adherence to the DEA’s mission

and responsibility to its employees for career development and promotion of institutional morale.

The strategic analysis includes oversight and assessment of the organizational promotion

policies of supervisory special agents on an annual basis. The administrative team also receives

ancillary information from other internal key stakeholders, such as the agency’s personnel that

are members of the administrative team, however, not classified as SES. The importance of the

lower rung administrative team and their input is vital to training and development because they

are able to provide a more current perspective on the needs of the agency and its employees.

“Attention to stakeholder concerns is crucial: the key to success in public and nonprofit

organizations (and communities) is [sic] the satisfaction of key stakeholders.”22

The lower rung administrative team is in a better position to recognize special agents that

possess advanced degrees and further exhibits leadership qualities fitting the position of

supervisor. Historically speaking, the DEA’s top administration relies too heavily on assessment

21 Drug Enforcement Administration (2003) Training and Professional Development for Grade 14 , p.4 22 Bryson, p. 35

24

centers that add a subjective value to the interview process for supervisory special agent. These

assessment centers believe that the program is able to identify hidden supervisory strengths of

applicants through role play scenarios instead of considering or requiring advanced degrees with

public management studies.

These assessment centers are failing the DEA because of continuing to do business as it

has for the last 41 years. The current process is preventing the agency’s training and

development program from evolving into the twenty-first century. Role-play scenarios and

intuition by members of an assessment team that possess the minimum education requirements,

combined with their own supervisory experiences, are insufficient in determining promotions to

supervisory special agent positions.

The DEA’s Mission, Mandates and Vision

The following DEA mission statement reads:

“The mission of the Drug Enforcement Administration (DEA) is to enforce the controlled

substances laws and regulations of the United States and bring to the criminal and civil

justice system of the United States, or any other competent jurisdiction, those

organizations and principal members of organizations, involved in the growing,

manufacture, or distribution of controlled substances appearing in or destined for illicit

traffic in the United States; and to recommend and support non-enforcement programs

aimed at reducing the availability of illicit controlled substances on the domestic and

international markets.”23

The DEA Administrator, along with the cabinet, created and implemented the aforementioned

23 Retrieved from: www.DEA.gov/about/mission.shtml

25

mission statement from the input of internal and external stakeholders in an effort to remain

accountable and transparent, as much as possible, to society.

The DEA is funded through public funds appropriated by Congress; therefore, there is a

fair amount of responsibility on the DEA to ensure compliance and adherence to the mission of

drug enforcement, institutional morale and preservation of public value. “The formal and

informal mandates placed on the organization consist of the various “musts” it confronts-that is,

the various requirements, restrictions, expectations, pressures, and constraints it faces.”24

The core values and culture of the DEA is to carry out effective global drug enforcement

that leads to the successful prosecution of narcotics offenders, along with the successful asset

forfeiture of their property acquired through drug proceeds. The DEA is further involved in

dismantling narco-terrorism organizations responsible for the shipment of ton quantities of

narcotics to the United States, who in turn utilizes drug proceeds for the purchase of illegal

firearms and explosives. The DEA is further responsible for coordinating the extradition of

international narcotics offenders with domestic federal courts to be arraigned on violations of

international narcotics laws.

The basic social need the DEA meets is promoting public value through effective global

narcotics enforcement. The DEA is further responsible for vetting international law enforcement

units to work with the DEA special agents assigned to international posts of duty. It is through

the collaboration with vetted law enforcement teams from host countries that assists the DEA in

achieving the mission of global narcotics enforcement.

24 Bryson, p.37

26

The vetted teams are familiar with the geography of their host countries, the political

system, which includes disclosing the level of international public corruption, and identified

military resources that include waterway vessels, air assets, and electronic communication

interception systems for intelligence gathering. As a result, the mission of global narcotics

enforcement makes the DEA distinctive and unique compared to other federal agencies.

There are some other federal agencies that are involved in global narcotics enforcement,

such as Homeland Security Investigations, hereinafter referred to as HSI and the Federal Bureau

of Investigations, hereinafter referred to as the FBI; however, the bailiwick of the DEA is global

narcotics enforcement while HSI focuses more on such investigations involving illegal

immigration, illegal smuggling and importation of goods, and human trafficking. The FBI also

focuses on similar investigations to include global terrorism and public corruption.

Therefore, narcotics enforcement is pursued by HSI and the FBI, however, it is not their

main focus or mission. The DEA’s sole mission and focus is global narcotics enforcement that

further includes money laundering investigations, narco-terrorism, prevention of the diversion of

controlled substances, and civil investigations relative to asset forfeiture.

Environmental Scan (SWOT) - Internal Assessment - Strengths

The environmental scan, or strengths, weakness, opportunities and threats, hereinafter

identified as SWOT, of the DEA can be analyzed through the framework of strategic

management. “The SWOT analysis provides information that is helpful in matching the firm's

resources and capabilities to the competitive environment in which it operates.”25

25 Retrieved from www.quickmba.com/strategy/swot/

27

The DEA’s key strengths are the 5,234 dedicated special agents, along with 5,791 support

staff members, that pursue the mission of global narcotics enforcement. The agency’s personnel

is further supported by a dedicated SES management team to ensure necessary operational

funding from Congress and that field investigators have the latest necessary tools and resources

to accomplish investigative goals.

The DEA is further supported by Congressional leaders, local, state and federal

prosecutors, community leaders, and the general public. Congressional leaders routinely hold

hearings with the DEA’s Administrator for updates on drug enforcement statistics, quantity,

quality and types of narcotics smuggled across the borders of the United States, identification of

leaders of drug trafficking international cells, and for the DEA’s accountability of annual

operating expenditures to ensure that subsequent budget requests are received for continued

enforcement activities. Therefore, “[m]onitoring a variety of forces and trends, including the

political, economic, social, educational, technological, and physical environmental ones, can help

planners and decision makers discern opportunities and challenges.”26

The local, state and federal court systems support the DEA through aggressive

prosecutions of narcotics offenders and asset forfeiture of their property acquired through drug

proceeds. The general public further supports the mission of the DEA through the submission of

anonymous tips of drug traffickers and further serving as grand jurors for the indictment process

and serving as jurors in criminal and civil trials.

It is understood that jury service is a civic duty; however, the public learns the methods

and means of the DEA relative to the way in which the mission of drug enforcement is

accomplished, along with is associated dangers. As a result, these individuals can be counted on

26 Bryson, p. 39

28

to contact the DEA in the future relative to narcotics related activities in their communities.

Internal Assessment – Weaknesses

The DEA’s internal weakness is the way in which supervisory special agents are

developed and trained. As a result of the agency’s failed attempt at properly developing

supervisory special agents, some of which may be promoted to upper management positions to

include SES positions, is failing to fulfill the mission of the DEA. The failure that develops is

through the mismanagement and guidance of enforcement groups.

Enforcement groups cannot operate on their own without direction. These groups are

comprised of at least ten agents or task force officers from the New York Police Department,

hereinafter referred to as the NYPD, and members from the New York State Police, hereinafter

referred to as NYSP. Enforcement groups that comprise personnel from varied education and

work experience backgrounds, at times, leads to internal group conflicts.

These conflicts may arise as a result of personality and insecurity issues amongst the

team. The supervisory special agent must be aware of the internal dynamics of enforcement

groups to ensure that there is harmony and respect amongst the team to ensure that the focus

remains on the mission of the DEA and not on personnel issues.

External Assessment – External Opportunities

The major key forces and trends that affect the DEA are the amount of drug trafficking

organizations that challenge the mission of the DEA daily. Drug trafficking organizations

threaten the national security of the United States through the importation of illegal narcotics

smuggled over adjoining borders and through transportation systems. Other key force that

29

affects the DEA is Congress because the legislative body must be satisfied by the work of the

DEA for continued operational funding to support the mission of global narcotics enforcement.

At least one major external opportunity the DEA has coming in the next three to five

years is better collection of electronic intelligence to assist global field investigators. With the

advancement of new technology and new federal laws, agents can expect to receive real-time

electronic intelligence that will increase the response time to narcotics interdiction operations at

major transportation facilities and international borders.

External Assessment – External Challenges

Other external challenges and threats to the DEA is a decrease in federal funding for

operational expenses. Moreover, there are also a growing number of violent international narco-

terrorism organizations that are replacing their predecessors that have been arrested and

extradited back to the United States. The DEA cannot afford any cost cutting measures from

Congress because it will jeopardize ongoing enforcement missions.

Examples of cost cutting measures are limiting funding for narcotics purchases in the

development stages of narcotics investigations, travel of special agents to overseas locations for

interviews and debriefings, cash award payments to assets, and electronic eavesdropping

operations. Further cost cutting measures could jeopardize the diversion program that supervises

the issuance of medically prescribed narcotics.

Another identifiable external challenge that is currently developing from an internal

source is the rapid amounts of retiring personnel. The amount of retiring personnel is

challenging the DEA to continue operations with fewer personnel which further stresses the

agency in successfully accomplishing its mission. The DEA is unable to train more than two

30

special agent classes at a time in a 16 week program at the training facility in Quantico, Virginia.

Each class consists of approximately 50 basic agent trainees that cost the agency approximately

$100,000 for each trainee processed and placed into an academy class. That funding further

includes relocation services for some trainees that qualify for the program post-graduation.

Organizational Impact of Innovation

The proposed innovation for the requirement of graduate degrees for supervisory special

agents supports the DEA’s mission through the development and advancement of competent

personnel. These first-line supervisors are responsible for ensuring that enforcement groups are

transcending the DEA’s mission of global narcotics enforcement, working as liaisons with

foreign governments, along with developing reciprocating relationships with domestic and

international law enforcement communities.

It is through professionalism of supervisory special agents, along with Frederick Taylor’s

principle of scientific management that leads to institutional morale. Internal organizational

harmony makes the mission of the DEA attainable. This innovative proposal will seek to

discontinue the advancement of special agents with no supervisory training or skills. This

proposal will further attempt to prevent coercive leadership and “country club” mentality of

supervisory special agents in an effort to promote harmony within law enforcement groups.

Conclusion

This innovative proposal suggesting a change to the training and development program of

supervisory special agents will lead to a major transformation. The training program will be

better suited for the development of competent law enforcement professionals that possess the

necessary advanced degree requirements that will promote professionalism, institutional morale,

31

while at the same time addressing a major weakness within the DEA.

As a result of addressing the identified organizational weakness, the implementation of

this innovative proposal in the DEA will not be as challenging as one might expect. In light of

the fact that the DEA has an academic infrastructure currently in place, mandating the new

education requirement would be an acceptable addition to the training and development program.

Special agents considering promotional opportunities to supervisor could take full advantage of

the academic development program affordably.

CHAPTER 4- IMPLEMENTATION

The DEA has been promoting supervisory special agents through role play scenarios and

assessment centers staffed by the agency’s upper level management, or senior executive services

management teams, hereinafter referred to as SES, over four decades. This assessment and

promotion system has not evolved or allowed the agency to adapt to a more contemporary

approach to vetting and promoting qualified applicants for of supervisory positions. “However,

sometimes, rather than being encouraged to develop new ideas and try new solutions, we in law

enforcement are placed under tremendous pressure to do the job as it always has been done – to

32

not rock the boat.”27

Therefore, there is an apparent need to modify the promotional practice through the

requirement of applicants possessing graduate degrees that include studies in public

management. The education requirement is not the panacea to the promotional appointment of

qualified applicants; however, the DEA will be on solid footing in which to develop new

supervisory special agents that already possess critical thinking skills, combined with sound

verbal and written communication skills.

The new supervisory special agents that are in compliance with this innovative proposal

will further benefit from the in-service graduate level management training. At this point, the

DEA has hired a significant amount of special agents that already possess graduate degrees. For

example, over the last three years, the DEA hired approximately “256 special agents”, with

approximately 58 of them possessing graduate degrees and higher. Of the graduate degrees

earned the academic studies included “political science, public management, business

administration, leadership and some earned a juris doctorate.”28 Therefore, over the last three

years approximately 23% of recently hired special agents possess graduate degrees or higher that

included studies in public management. These new hires combined with the DEA’s current

academic infrastructure will fulfil this proposed innovation over the next few years.

Need for Proposed Innovation

This proposed innovation is necessary for the promotion of professionalism and

institutional morale to exceed the mission of global narcotics enforcement. The current state of

the DEA is the promotion of “friends” within the agency that supervise subordinate agents

27 Scott W. Olson (2010) Successful leadership training Leadership Spotlight FBI Law Enforcement Bulletin, p.15 28 Statistical data retrieved from the DEA’s Human Resource Division

33

through established relationships. As a result, there is no contemporary management style

applied to enforcement groups. There is no foundation or substance to management styles

supported by classical theoreticians of public administration.

“Basically, the idea of a situational leadership is that different situations require different

styles of leadership and, correspondingly, that leaders need to be able to understand key

characteristics of the organizations they lead and then adapt their own behavior to fit the

situation.”29

Moreover, there is no education requirement beyond a bachelor degree that is preparing

applicants for supervisory special agent positions. “Leadership is the catalyst for improving

agency performance and building trust and confidence among internal and external

stakeholders.”30 Only effective leaders will guide the DEA towards advancements in federal law

enforcement for the continued purpose of meeting the needs of society.

The DEA, like any other professional federal law enforcement agency, must consider

input from key stakeholders for the agency to continue to promote public value. “Agencies must

study what employees think about their organization and the specific areas in which they express

dissatisfaction – and do something about what they learn.”31 This information comes from

internal key stakeholders, specifically subordinate special agents, which have recognized and

identified a major decrease in institutional professionalism.

The innovative proposal for the requirement of a graduate degree with studies in public 29 Robert B. Denhardt, Janet V. Denhardt and Maria P. Aristigueta (2013) Managing human behavior in public and nonprofit organizations Sage Publications Incorporated, p. 199

30 FEMA (2008) Strategic fiscal year 2008: The nation’s preeminent emergency management and preparedness agency FEMA p-422/January 2008, I-VI, 1-54, p.5 31 Edwin Booz, James Allen and Carl Hamilton (2011) Keeping talent, strategies for retaining valued federal employees Partnership for Public Service January 2011, p. 14

34

management for supervisory positions was further supported in a survey in the Minnesota Police

Department in 2008. “Officer perceptions of what should be the minimum education

requirement for promotion to the various rank structures indicated that the higher the rank, the

more formal education should be required.”32 However, the study also suggested that education

requirements were not much of a concern to those with a significant amount of time on the job.

In other words, the longer one has been on the police department, the less likely one will

be inclined to require an education standard. This is exactly where the DEA is with respect to

the education requirement for supervisory special agents. The assessment centers are staffed by

members of the SES, who have significant years of service with the DEA, who possess the basic

education requirement.

These SES members may only have a bachelor degree combined with extensive work

experience that they feel qualifies them to assess applicants for supervisory special agent

positions. If members of the SES do not possess a graduate degree and have been able to

promote within the agency to upper level management, then they will be less inclined to sponsor

or support this innovative proposal.

Project Implementation: Key Personnel/Opponents/Funding/Timeline

The key personnel involved in implementing this innovative proposal is the DEA

Administrator, Deputy Administrator, along with members from the Office of Executive Equal

Opportunity and Employee Assistance Division; the Executive Policy and Strategic Planning

Division; the Office of Chief Counsel; the Human Resources Division, the Financial

Management Division and the Planning and Evaluation Unit.

32 Susan Hilal, Ph.D and Timothy Erickson, M.A.T, M.S.E. (2010) The Minnesota police education requirement: a recent analysis FBI Law Enforcement Bulletin June 2010, p. 20

35

“In the classic bureaucratic model, structure and management are closely linked.”33 The

DEA administration follows the classic bureaucratic model with the Administrator representing

the top manager that passes down to subordinate units program proposals for evaluation,

acceptance and implementation. The Administrator would further establish the new requirement

and timeline in which to implement this innovative proposal. This proposal, however, would be

vetted by the aforementioned stakeholders to ensure compliance with federal labor laws, the

ability to budget funding for personnel that pursue tuition reimbursement, along with an

evaluation plan to measure program outcomes.

Opponents

Opponents of the innovative proposal are those members of upper management that do

not have graduate degrees. These same members are of the opinion that their minimum

education achievement, combined with work experience, was the necessary criteria for them to

become successful public managers in the DEA. Therefore, as indicated in the Minnesota Police

Department study, the longer one as has served in law enforcement, the less likely one will be in

agreement with this innovative proposal.

Perhaps the way in which to convince the opponents of this proposal is to provide

empirical data from research studies, as in the case of the Minnesota Police Department, that

shows a correlation between graduate degrees, job performance and subordinate support. The

empirical data may not necessarily change the minds of all opponents; however, it can be

presented through a professional forum for opponents to make a more informed decision.

33 H. George Frederickson (2010) Social equity and public administration: origins, developments and applications M.E. Sharpe Incorporated, p. 30

36

Despite opponents’ opposition, the Administrator has the ability to influence support of

any program. It would not be in the best interest of opponents to attempt to take a stand against

the Administrator if they are continuing to seek upward mobility within the agency. The

Administrator has the authority to grant favors to dedicated and loyal personnel especially to

those in her administration. “In the traditional top-down model of organizational leadership, the

leader was the one who established the vision of the group, designed ways of achieving that

vision, and inspired or coerced others into helping to achieve that vision.”34

Funding

It is very difficult to suggest the necessary funding for this proposal without having the

program in place and some measurable data to evaluate. In public service, achieving operational

funding is an annual struggle. The DEA may have to limit the amount of personnel per annum

based upon an estimated fee of $20,000 per person to complete the program. The graduate

program would theoretically cost the agency approximately $8,000 per year for each special

agent. The estimated $20,000 utilized in this example is based on the graduate program for law

enforcement personnel to attend Marist College. The estimated fee does not represent costs of

all other graduate programs in competing academic institutions.

The DEA would also have to limit those based on the sensitivity of current work

assignments. A complex investigation that involves nights and weekends would not be an ideal

situation for personnel seeking to pursue a graduate degree. The DEA administration would also

34 Denhardt, Denhardt and Aristigueta, p. 190

37

be required to request supporting documentation from incumbent supervisors for non-

supervisory personnel that wish to pursue graduate studies.

The DEA cannot afford to allow all personnel to pursue graduate studies just for the sake

of completing a graduate program; however, it should be afforded to those that have

demonstrated a commitment to the agency and have the support of their first and second line

supervisors. With the innovative proposal in place, it would be appropriate to have members

with the Human Resource Unit, hereinafter referred to as HRU, approve the applicants for

graduate studies.

The HRU would be further responsible for contractual agreements between applicants

and the agency for satisfactory completion of the graduate program and their commitment to

pursue supervisory special agent positions. This program would have to be closely policed by

the HRU to prevent any misuse of federal monies or abuse by personnel for their own selfish

reasons.

Timeline

The timeline in which to implement this proposed innovation should be at least fiscal

year 2016. This delay would further allow each office to research available graduate programs in

their respective areas to project the cost to the agency. Once the cost of a graduate program is

determined, field offices would be required include tuition reimbursement funding in their

annual budgets. To further assist field offices in requesting operational funding, the

Administrator could also have federal monies available in the headquarters account, which is a

centralized fund for special projects in field offices.

38

If the agency attempted to implement the proposed innovation after the annual budget

had already been approved, the agency would run the risk of creating a deficit during the fiscal

year. As a result, some programs would have to be cut to cover the tuition reimbursement

program. The delay in implementation would further allow the DEA administration time to

decide how many special agents would be allowed to attend graduate programs in each domestic

and international field office.

The agency should consider the tuition reimbursement program as an investment in its

personnel. In meeting the needs of its personnel which in turn benefits the agency, the DEA

must recognize and meet the employees’ hierarchy of needs. The hierarchy of needs have been

defined by psychologist Abram Maslow as “physiological, safety, love, esteem, [and] self-

actualization.”35

As the DEA meets the needs of its employees, they become more connected to the

agency and inspired to meet the goals and mission of the organization. The tuition

reimbursement program should inspire personnel to pursue graduate degrees in an effort to

become satisfactory supervisory special agents. One would further expect that this new class of

supervisors would continue to promote professionalism in federal law enforcement and the

protection of institutional morale.

Project/Process Assessment

This proposed innovation will be evaluated by the DEA’s office of Planning and

Evaluation Unit, hereinafter referred to as PEU. Since the proposed innovation could be

implemented as early as fiscal year 2016, the program should not be evaluated until at least fiscal

35 p. 166

39

year 2018. Since some graduate programs run at least two and a half years, the agency should

have a sufficient amount of data after at least two years to determine a projected graduation rate.

Performance appraisals could also be included for post-graduate students promoted to

supervisory positions. A weakness in a graduate program could also be highlighted in one’s

performance evaluation requiring modifications to the program and additional course work.

“If the program has changed appreciably before outcomes are measured, the effects of the

different variants of the intervention will all be mixed together in the results with no easy way to

determine what program version produced what effects.”36 If the DEA does not allow enough

time to pass, evaluating student graduation rates and performance appraisals will be inaccurate.

The measurable data would illustrate a graduation success rate that could be altered

through the allowance of more graduate students or less depending on the success ratio. The

evaluation process could also reexamine the graduate program, along with the program costs to

ensure that it is meeting the needs of the agency. If there are more students that did not complete

the program compared to those that did, the agency must consider allowing more special agents

to enroll in the graduate programs. The agency must continue to strive to develop a pool of

qualified and academically trained candidates for supervisory special agent positions. Moreover,

to be fair to the DEA and accountable to the taxpayers, special agents that do not complete

graduate programs after enrollment must be responsible for reimbursing the agency.

Following the completion of the outcome evaluation of this innovative proposal, the

findings should be reported back to the Administrator, the HRU along with the domestic and

international field offices for consideration. Should the evaluation reveal positive findings, the

36 Peter Rossi, Mark Lipsey and Howard Freeman (2004) Evaluation: a systematic approach 7th Edition Sage Publication, p. 259

40

Administrator and the HRU should continue to support the graduate program. However, should

the findings reveal negative results, that information must be reported posthaste for immediate

correction before the next wave of special agents enroll in their respective graduate programs.

Conclusion

The DEA has the necessary tools and key stakeholders in place to adopt this innovative

proposal. This proposal sets forth the timeline and evaluation process in which to police the

program. The funding would be handled by the Administrator through annual field office budget

requests and designated headquarters funding accounts for special projects.

The Administrator could justify to Congress increased funding for the DEA to further

support the tuition reimbursement program as an investment in the agency’s future. The DEA

must recognize the fact that the agency will not evolve in the twenty-first century without

making necessary organizational changes. The immediate organizational change that the DEA

should consider is investing in its personnel for a contemporary approach in the advancement of

the agency’s leadership.

41

CHAPTER 5- CONCLUSION

The innovative proposal for the requirement of graduate degrees that includes studies in

public management for supervisory special agents with the DEA is an ambitious plan. However,

this innovative proposal is necessary to transform the way in which the DEA has been promoting

supervisors. Over the last four decades, the DEA has been utilizing assessment centers and role

play scenarios to make subjective decisions on one qualifying for promotion opportunities.

Society has changed significantly over the years with respect to narco-terrorism and

importation of ton quantities of narcotics that have crossed international borders into the United

States. Narcotics traffickers have evolved as a result of drug enforcement efforts and have

become smarter in the way in which they import narcotics. Traffickers have utilized clandestine

ways of smuggling narcotics hidden in trap compartments installed in vehicles, tractor trailers,

human body carriers, voids in furniture, and machine parts.

As a result of smarter criminals, the DEA must keep pace with an evolving process and

not continue to do business as it did in 1973. The DEA has evolved with respect to

advancements in law enforcement techniques. Some of these techniques include global

eavesdropping initiatives, the process in which to development overseas assets, or confidential

42

informants, the implementation of sophisticated aircraft assets that scan international waters,

along with advancements in money laundering investigations through the assistance of domestic

and international banking systems to capture money launderers.

The DEA has illustrated that it has the capacity to meet the challenges of the

sophisticated drug trafficker, however, has lost focus on strengthening the internal core of the

organization. Without continually evolving to remain effective in global narcotics enforcement,

the DEA will not be effective in fulfilling its goals and mission. Moreover, should DEA not

review its supervisory promotional program then the organization will continue to fail its

personnel.

The DEA has developed an academic infrastructure that falls short in mandating graduate

degrees for supervisory special agents. The DEA has further admitted necessary skill sets for

supervisory positions that cannot be taught through basic in-house training. The agency cannot

afford to overlook necessary competencies to just fill supervisory positions.

The current assessment centers may have worked at one point in the 41 year history of

the DEA; however, based upon the perspective of subordinate special agents the promotional

process is not effective. One having a graduate degree with studies in public management may

not guarantee that coercive style of management may still exist. However, one would expect that

supervisory special agents in compliance with this innovation would be more reasonable in

executing a leadership style supported by theoreticians in classic public administration.

Coercive leadership may be necessary during exigent circumstances, but it is not

necessary during the normal course of drug enforcement operations. With the existence of

coercive leadership, personality conflicts become evident amongst subordinate agents and

43

disrespect develops towards the supervisor. Coercive leadership does nothing for conflict

resolution and will only disrupt the harmony of a law enforcement group. One having a graduate

degree with studies in public management would know how disruptive coercive leadership can

be to an organization; therefore, one would expect academically trained supervisors to utilize a

more reasonable approach to encouraging, inspiring and supervising personnel.

Research/Strategic Analysis of the Organization

The research and strategic analysis of the DEA was completely thorough with respect to

the supervisory promotion program. The research utilized in the formulation of this innovative

proposal included proprietary agency literature that governs the training and development

programs of Grade 13s, non-supervisory special agents, and Grade 14s, supervisory special

agents. The academic infrastructure for supervisory special agents with the DEA is outlined in

the training and development guide of Grade 14 special agents.

The DEA indicates that the literature for the training and development program for Grade

13 and 14 special agents was last updated in March of 2003; however, the promotional process

has not changed since 1973. The DEA must recognize the fact that the needs of internal and

external key stakeholders are not being met as a result of an outdated program.

At least one major problem was encountered in gathering information for the preparation

of this innovative proposal. The DEA does not have readily available to all personnel the

training and development literature utilized in this capping paper. These materials are only

provided to candidates that have been accepted to enter the supervisory special agent assessment

program, upper levels of management and assessment centers for guidance. These materials

44

were provided through the New York Field Division’s program analyst’s office with the

understanding that the material would be utilized for the production of this capping paper

proposal.

This Proposed Innovation Leads to Dramatic and Positive Change in the Organization

If accepted, this innovative proposal would lead to a dramatic change in the promotional

process of supervisory special agents that leads to a positive change in the organization. The

dramatic change to the program would be assessing supervisory candidates that have an

extensive work history with the DEA, and a graduate degree that included studies in public

management. The DEA would be in a position to assess a more qualified and well-rounded

candidate for supervisory positions that have an appropriate background in which to build upon.

This new breed of qualified supervisors would be better suited to attend the condensed in-

house training program since these topics may have already been covered in their respective

graduate programs. In fact, these new supervisors may be able to improve the in-house training

program based on their training and education. The cycle of doing business as usual must be

prevented to allow the agency to improve and evolve in the twenty-first century.

Therefore, if this innovative proposal is accepted it will have a dramatic and lasting

change on the promotional program for supervisory special agents. This innovative proposal,

like any other program, must continue to be evaluated to ensure that it is meeting the needs of the

key stakeholders and the mission of the agency.

This Proposed Innovation Capitalizes on a Current Strength in the Organization

This proposal will capitalize on the DEA’s current academic infrastructure currently in

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place. The DEA has already created a tuition reimbursement program to incumbent supervisors,

in-house graduate programs, and periodic in-house training in an attempt to remain current on

supervisory techniques. Furthermore, the DEA has also recognized that critical thinking and

analysis cannot be taught through a basic condensed in-house graduate program, which is the

reason the DEA currently has a tuition reimbursement program.

After studying the research necessary to complete this proposal, it appears evident that

the DEA is leaning towards the requirement of graduate degrees for supervisory special agents.

The DEA, however, has stopped short in the requirement of the graduate degree for reasons

unknown to the program analyst. One could only assume that there may not have been enough

supervisory candidates that possess graduate degrees. Moreover, it could also be assumed that

the senior administrative staff does not require graduate degrees because it has never been

common practice. This assumption goes back to the argument of breaking the cycle of doing

business as usual.

This Proposed Innovation Addresses a Major Weakness in the Organization

The problem, however, is that the graduate degree program is strictly voluntary but

recognized by the DEA as an important asset for one to have to be a successful supervisor. As a

result of the current academic program in place, adding the requirement for a graduate degree

will simply dovetail into the preexisting promotion program.

The new applicants will be better educated and more qualified than just promoting a

special agent with a decade or more of time on the job. One having a significant amount of time

does not mean that they know the job any better or are more effective and efficient. It is the

subjective side of the assessment centers that are failing the agency of promoting qualified

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candidates.

Program Evaluation

The way in which to evaluate the success of this program is through the graduate rates

compared to the amount of enrollment and post-graduate performance appraisals of supervisory

special agents. In other words, if the DEA’s New York Field Division allowed approximately 20

agents to enroll in Marist’s Public Management graduate program, the agency would expect that

all 20 agents will graduate on time after two and a half years. This evaluation would be

completed two years after the start of the program but before the class graduated. The reason to

have the evaluation before the class graduated is to allow the evaluator to identify any issues

with the program and suggest corrective action before the next wave of graduate students.

The evaluator would examine agents’ work performance, course curriculum and tuition

reimbursement claims. Student grades must be evaluated to ensure that the student is taking the

program seriously which will be reflected in the course grades. The agent’s work performance in

the field will be evaluated to ensure that the agent is completing work assignments while

attending evening or hybrid classes. The evaluator would also consider performance appraisals

of new supervisors to ensure that they are performing at acceptable levels.

The evaluator must ensure that the agency’s investment in the graduate program will pay

dividends in the future. An agent suffering at work, however, completing the graduate program

is not showing loyalty and dedication to the agency. Therefore, this may be a classic case of one

pursuing a graduate degree for selfish reasons and may leave the agency subsequent to

graduation.

In this instance immediate corrective action is necessary to protect the agency and public

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funding expended through the tuition reimbursement program. The corrective action could be

the agent reimbursing the agency for the cost of the graduate program upon graduation for failing

to maintain a satisfactory work performance. This may be a rare case considering that each

special agent would be assessed based on work performance and support by the first and second

line supervisors. A mediocre special agent that is operating at a satisfactory work level should

not be suggested or supported to attend a graduate program compared to those operating at an

outstanding work level. Therefore, it is the responsibility of the first and second line supervisors,

along with the HRU, to carefully select appropriate candidates for graduate programs.

Appraisal of Problems Relative to: Support/Funding/Time

The difficulty in achieving support for this innovative proposal is getting members of the

SES management team to accept this proposal for submission to the Administrator. Normally,

program and policy changes start at the top and work down the chain of command, not from the

bottom up. It is also very unusual for nonsupervisory personnel to suggest program and policy

changes through the chain of the command or directly to the Administrator.

The Administrator does not have an open door policy to subordinate agents that is one of

the reasons for a clear chain of command. In this instance, submitting the suggested program

innovation would begin at the level of the New York Field Division’s program analyst who

would then pass this proposal onto the Special Agent in Charge, hereinafter referred to as the

SAC. If the SAC already meets the criteria in this innovative proposal one would expect that the

SAC could understand the importance of graduate degrees with studies in public management.

Moreover, one would also expect that the SAC would understand the needed changes in the

supervisory promotional program. However, if the SAC only has a bachelor degree combined

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with an extensive work history, he may believe that the current education requirement and in-

house training program is sufficient.

It would be up to the SAC to agree with this proposal before being passed along to other

members of the SES at the DEA headquarters in Washington, D.C. for analysis and

consideration. Should the proposal be accepted by members of the SES in headquarters, it would

then be forwarded to the Deputy Administrator for acceptance before submission to the

Administrator for consideration.

Funding

The funding would be based upon a number of special agents from each divisional office.

Furthermore, the funding may vary throughout the country as a result of varying costs of living.

The agency, however, would only be required to reimburse agents up to four classes per year and

not be required to reimburse the entire fee of the graduate program in one installment.

Therefore, divisional office operating budgets would not be overwhelmed with the tuition

reimbursement program. The budgetary line item may increase over time but stabilize based on

the need of the division and the agency. Should the agency develop a substantial pool of

qualified supervisory special agents to fill future positions, the agency may decide to temporarily

limit graduate program enrollment.

The DEA could jeopardize its progress if the program is implemented then suspended at

any point. The pool of qualified candidates could dramatically shrink as a result of numerous

appointments to keep pace with retiring supervisors. Should the DEA run a deficit on qualified

applicants for supervisory special agents, the agency would suffer the consequences of

temporarily promoting coercive leaders or country club managers. These types of managers

49

have been plaguing the agency for years.

Timeline

As for the time period in which to implement this proposal, fiscal year 2016 would be an

appropriate time in which to open the tuition reimbursement program for qualified special

agents. Divisional offices would need time to decide on applicable academic institutions in their

respective areas and perhaps possibly develop tuition discount programs to the agency. Chosen

academic institutions could rely on the DEA for graduate student enrollments and therefore

return a discount to the agency for its commitment to the graduate program.

Additional Research Required

Additional research required is to determine the amount of supervisory special agent

positions available now and in the future. The staffing requirements will provide more

information to field offices to determine the amount of special agents to be considered for

graduate programs. Having information on available positions and understanding the future need

will better prepare the DEA in ensuring an appropriate pool of qualified candidates.

Currently, the DEA struggles to back-fill vacant positions that have had acting, or

unofficial, supervisors temporarily filling these positions because of a delay in promotional

appointments. The delay can result from the lack of funding for personnel transfers to

assignments in other field offices, and the lack of supervisory candidates requesting assignments

in less popular field offices.

Likelihood That Proposed Innovation Will Be Implemented

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It is anticipated that this capping proposal will be submitted to the New York Field

Division’s program analyst for review and submission through the chain of command. The issue

is that the submission of a program change by a nonsupervisory special agent may not

necessarily be accepted unless one has an alliance with a member of the SES management team.

However, every effort will be made to pass this innovative proposal through the chain of

command for at least feedback from the SAC on whether or not this program could be

implemented in the future.

In an optimal situation, a meeting with members of the SES team would be appropriate to

discuss this proposal in person and answer any questions they may have. Having an in-person

meeting would provide a better understanding of this proposal and the necessary changes

required to the training and development program for supervisory special agents. Therefore,

highlighting the importance of implementing a contemporary approach to promoting competent

personnel to supervisory special agents may be necessary in thwarting complacency in the DEA.

Conclusion

This proposal suggests an innovative program to be implemented in the DEA in

connection with the enhanced education requirement for the position of supervisory special

agent. The aforementioned five chapters discussed the problems within the agency as a result of

the promoting incompetent personnel to supervisory positions that have plagued the agency for

decades. Moreover, there is a thorough explanation of the strengths and weaknesses of the DEA,

key stakeholders, classic theorists of public administration and their principles that support this

proposal, along with the timing and funding for the implementation of this program.

The requirement for graduate degrees that include studies in public management may not

51

necessarily be the panacea to the sustainment of professionalism and promotion of institutional

morale in the DEA; however, the agency must focus on the promotion of competent, dedicated

and professional leadership to direct law enforcement groups in an effort to further the mission

of drug enforcement. The DEA must recognize that a management team grounded in the

principles of public administration is the forward approach necessary to remain a leader in global

narcotics enforcement in the twenty-first century.

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APPENDIX A.

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