The Honorable Clay Johnson III
Committee on Government Reform
United States House of Representatives
May 17, 2006
This Administration recognizes that the granting of security clearances should
be faster, but also ensure only those who need and deserve a security clearance
actually get one.
The keys to improving the effectiveness and efficiency of the security clearance
- having clear, mutually set goals;
- plans and milestones that measure whether we’re on track to meet
- a lot of monitoring of the performance of responsible investigative and
adjudicative agencies; and
- accountability for achieving mutually set goals.
We’ve had goals before, but have never held agencies accountable for
Since enactment of the Intelligence Reform and Terrorism Prevention Act of
2004, the Administration has taken serious steps to improve the security clearance
process. The Administration gave responsibility for improving the security
clearance process to the Office of Management and Budget (OMB). The
Director has delegated that responsibility to me. Various other responsibilities
have also been delegated, principally the responsibility for the day-to-day
supervision and monitoring of security clearance investigations, and for the
tracking of the results of individual agency-performed adjudications, was assigned
to the Office of Personnel Management (OPM).
To assist OMB and OPM in this endeavor, we have enlisted the support and commitment
from all major agencies seeking and involved in providing security clearances.
They include the Departments of Defense, Homeland Security, Energy, Justice,
Transportation, Commerce, and State, as well as OMB, OPM, the National Archives
and Records Administration, the National Security Council, and the Director
of National Intelligence. These agencies, which make up the Security Clearance
Oversight Steering Committee, are committed to reforming the process and achieving
the goals laid out in the Intelligence Reform and Terrorism Prevention Act:
they are very proud to be a part of this effort.
The Security Clearance Oversight Steering Committee first met in August of
2005 with the initial focus on improving the investigative work done by OPM.
OPM currently conducts 90 percent of the investigations necessary to determine
eligibility for a security clearance. It established two working groups,
one to craft the plan to meet the goals of the Intelligence Reform and Terrorism
Prevention Act and another to address issues related to the reciprocity of
security clearances among Federal agencies.
The Plan for Improving the Personnel Security Clearance Process
If the Administration’s improvement plan is implemented as promised,
you can be assured the result will be dramatic improvement in the timeliness
and processing of personnel security clearances. The plan details individual
areas of responsibility and actions required for success. For instance,
- At the end of 2005, a single consolidated data base of personnel
security clearance information was established and is easily accessible by
authorized users to confirm who already has what clearances.
- By December 2006, 80% of background investigations will be completed within
90 days of receipt of the necessary information.
- By December 2006, 80% of adjudications will be completed within 30 days
of receipt of a completed background investigation.
Interim goals and metrics are agreed to by the participating agencies and
will be tracked on a quarterly basis.
Of course, if many agencies now requiring additional investigation of personnel
with existing security clearances no longer require those investigations, the
strain on the security clearance process would be diminished significantly.
We commit to enforcing the longstanding policies that require agencies to honor
existing security clearances except under extraordinary circumstances. Reciprocity
means that for individuals with existing clearances at the same level, unless
one of several narrow exceptions are present, an agency may not:
- request a new security questionnaire;
- review existing background investigations;
- review existing security questionnaires;
- initiate any new investigative checks.
The Reciprocity Working Group has identified the narrow exceptions which must
be present in order for an agency to require the above additional investigations.
Those exceptions are:
- the current clearance is interim or temporary;
- for highly sensitive programs, the current agency accepted greater risk
by granting a waiver or other exception to an otherwise disqualified individual;
- for certain highly sensitive programs, the individual does not satisfy
a polygraph requirement if applicable to the new program;
- for certain highly sensitive programs, the individual is disqualified based
upon immediately family who are not U.S. citizens if applicable to the new
- for certain highly sensitive programs, the individual does not meet additional
but not duplicative investigative or adjudicative requirements approved by
OMB on a program specific basis.
Reciprocity has been required before, but no one has ever held agencies accountable
for honoring it. Agencies are moving to adopt these clearer set of conditions
under which clearance reciprocity should be granted. We have not reached
mutual agreement with the Department of Defense on reciprocity involving Special
Access Programs, but we expect, and are committed, to reaching agreement very
soon. We are also finding better ways to measure our compliance with
the reciprocity guidelines, in order to hold agencies most accountable for
abiding by the new conditions under which reciprocity should be granted.
Technology can improve the way we collect information, investigate an individual’s
background, and track the security clearance process end to end. Our first
priority is to maximize the use of technology at our disposal today. For instance,
all agencies have committed to full use of eQIP, the electronic collection
and transmission of individual background information, by April of 2006. This,
alone, will ensure not only the timely collection of background information,
but also that it is complete and accurate when it is received.
Agencies are also beginning to employ phased reinvestigations, a limited reinvestigation
that may be supplemented by information that is available from electronic databases.
Expanded use of this technology will greatly reduce the time it takes to update
existing security clearances.
We plan on achieving the security clearance goals of the Intelligence Act
with better use of current methodologies and technologies. Developing new technologies
and enhanced tools will allow us to further speed and improve the effectiveness
of the granting of security clearances.
Companies with employees waiting for security clearances are justifiably troubled
by the length of time it takes to complete a background investigation and grant
a security clearance. The Steering Committee has met with representatives of
the Contractor Community twice to outline our plans and commitment to improve
the process. We seek frequent input from them regarding the reciprocity
issue, to get a better sense of whether the concerns are increasing or decreasing. I
believe they fully understand that the security clearance process will be reformed.
Status of Improvements
I report to you today that agencies are making good, and in some cases significant,
progress improving the security clearance process, but we are not where we
want to be at this point in the reform process. I will let the Office
of Personnel Management report on the progress OPM is making to improve the
investigation process. With regards to the other parts of the process:
Submitting Investigation Requests for Investigation
We are making significant progress getting accurate, completed investigation
requests to OPM on a timely basis. In FY 2005, it took 32 days to submit
completed forms to OPM. In the most recent three months, completed forms
were submitted in an average of 21 days. Agencies, in general, are more
attentive to the need to improve submission times, but most importantly, they
have increased their use of electronic submission, eQIP, from 19% last year
to 42% in April. Our goal was to submit all requests electronically by
April 1; so we are not where we wanted to be, but we are making good progress. The
Department of Commerce (86% eQIP usage and submissions in 14 days) and the
Department of Defense (44 % eQIP usage and submissions in 9 days) should be
recognized for their strong improvements in this area.
Some, but not enough, progress has been made adjudicating clearance requests
on a timely basis. In April only 8% of adjudications were completed within
30 days, versus the ultimate goal of 80%. The Department of Commerce
(51%), the Department of Energy (50%), the Department of Transportation (47%),
and the Department of Homeland Security (43%) have made significant improvements,
but these gains are more than offset by the Department of Defense, which adjudicates
only about 5% of its cases within 30 days. The Department of Defense
needs to hire and train more adjudicators, which they are committed to do.
Agencies are reviewing and revising, if necessary, the activities they had
planned to achieve the desired goals, as they/we are still committed to achieving
the December, 2006, goals laid out in the Intelligence Reform and Terrorism
Defense Security Service Investigation Processing
The Defense Security Service recently halted temporarily the processing of
industry clearance requests. The reason for the cessation is simply the
Service did not anticipate the recent surge in requests for security clearances
and therefore finds itself without adequate funds to process these request. On
Monday, the Department of Defense submitted and OMB approved a reprogramming
request to provide $90.7 million to fund the shortfall. Once the four
Defense Committees approve the reprogramming, the Defense Security Service
will move aggressively to process industry requests for clearances. Additionally,
the Defense Security Service has committed to improving its workload projections
so this situation does not recur.
The goals we have set to improve the security clearance process are aggressive. Barriers
will arise periodically that inhibit our progress. Working with the partner
agencies and interested Members of Congress, I am certain we will be successful
in dramatically improving the efficiency and effectiveness of the security