FBI DIRECTOR ROBERT S. MUELLER, III RESPONDS
TO STUDY OF THE FBI’S DISCIPLINARY
PROCESS BY FORMER ATTORNEY GENERAL GRIFFIN BELL
AND FORMER FBI ASSOCIATE
DIRECTOR DR. LEE COLWELL
WASHINGTON,
D.C. -- FBI Director Robert S. Mueller, III, responded today to the submission
of the report of former Attorney General Griffin Bell and Dr. Lee Colwell regarding
the FBI’s disciplinary procedures and process. A study of the disciplinary
system was commissioned at the request of Director Mueller on May 23, 2003 and
was directed by Judge Bell and Dr. Colwell. Judge Bell, Dr. Colwell, and their
staff conducted a number of interviews of on-board employees, former employees
and individuals from other government agencies, and reviewed thousands of documents
associated with the FBI’s policies, procedures, investigations, and adjudications
in the disciplinary process. The purpose of the project was to develop practical
recommendations for improvements to the FBI’s internal disciplinary process.
The
Office of Professional Responsibility (OPR) in the FBI was established in 1976
to ensure that FBI employees conduct themselves with the highest level of integrity
and professionalism, and to address any allegations of employee misconduct or
criminality. OPR plays a crucial role in ensuring that allegations of wrongdoing
are thoroughly investigated and that discipline is appropriate and fair regardless
of the assignment or seniority of the employee involved. Over the years, OPR and
the disciplinary process have been modified in order to promote efficiency and
effectiveness. Most recently the disciplinary process came under review by the
Department of Justice, Office of the Inspector General, following allegations
of double standards.
The following is a statement issued by FBI Director Mueller:
“Today
I am announcing the completion of the study of the FBI's Office of Professional
Responsibility by former Attorney General Griffin Bell and former FBI Associate
Director Dr. Lee Colwell. I asked Judge Bell and Dr. Colwell to undertake a review
of OPR policies and process, and to provide me practical recommendations for improving
OPR and strengthening institutional and public confidence in our process for investigating
and adjudicating allegations of employee misconduct. I announced the commissioning
of this project to all employees in an e-mail on May 23, 2003. The final report
was delivered to me today.
“I am extremely grateful to Judge Bell, Dr. Colwell, and the law firm of
King & Spalding who worked on this project. The report is very thorough and
sets forth a number of solid practical recommendations. The FBI fully cooperated
with Judge Bell, Dr. Colwell, and their staff, providing all the input they requested.
To help provide a full range of unvarnished information to the study team, I sent
an e-mail to all FBI employees on September 25, 2003, urging anyone with relevant
information to provide input for the study and instructing them that they could
do so by directly contacting the study team. I was grateful to see in the final
report that over 50 in-person interviews were conducted and more than 100 people
accepted my invitation and provided information directly to the study team, thus
ensuring that Judge Bell and Dr. Colwell had the benefit of the full range of
employee concerns. The study team also had access to a full range of relevant
documents and statistical information to aid them in their review.
“I am impressed with the thoughtfulness and care with which the recommendations
were developed. Based upon my initial review of the report, I intend to adopt
most of the recommendations and have directed the Inspection Division to implement
specific changes in an expedited manner. Some of these recommendations will require
the establishment of working groups to develop the specific products or changes
called for in the recommendations. These groups will have representatives from
all relevant divisions of the FBI, as well as from the various employee ranks,
and will begin their work in the very near future. I will assign an Inspector
in Charge to oversee the implementation of each major recommendation to ensure
that we make swift progress towards implementing the improvements suggested by
the study.”
Director Mueller received the report from Judge Bell and Dr. Colwell with a transmittal
letter which may be reviewed on the FBI’s website www.fbi.gov.
The report contains 32 major recommendations, some of which can be quickly implemented
and others for which working groups will be formed to review and address the recommendations.
The Report identifies a number of deficiencies in the current OPR process. In
addition to problems with the structure of OPR, the Report found that cases move
far too slowly through the system, that offenses were vague and often ill-defined,
and that the precedent base used to determine the level of punishment was seriously
flawed and provided little guidance to the adjudicative process. The Report also
found that technical automation within OPR was seriously lacking, which contributed
to an overall lack of efficiency.
Key
Recommendations Presented by Judge Bell and Dr. Colwell
Action:
A working group will be tasked to develop model offenses and guidelines for punishments
that will be published to all employees and will provide greater clarity and transparency
to the disciplinary process.
- Recommendation:
The report recommends the separation of the investigative and adjudicative functions
in OPR.
Action:
As noted in the Bell/Colwell report, this recommendation would address the perception
that investigators and adjudicators in the current system act in an agent-prosecutor
relationship. To be credible to employees, the adjudicator positions must be professionalized
and be structured in a way that ensures they can be fair and impartial in all
instances.
To
implement this recommendation, the investigative function will be moved to the
Inspection Division. Adjudications, however, will be retained in OPR, which will
continue to be led by an Assistant Director who reports to the Deputy Director
and Director. We intend to retain the OPR to reflect the importance of the OPR
function. We will need the leadership of an Assistant Director to manage the adjudication
process, to maintain the model offense and punishment guidelines, to conduct outreach
and education to the field, and to constantly reinforce the importance of maintaining
the highest standards of conduct and ethics.
- Recommendation:
The report recommends that OPR’s technology be improved.
Action:
An information technology project manager has been assigned to assess and implement
necessary upgrades to OPR’s case management and statistical technology.