| Hundreds of agents are expected to leave the FBI within the next
five years, as a generation of agents reaches retirement age and others resign in favor of higher salaries
in the private sector. For the first time in the agency's history, large numbers of agents are leaving in
midcareer, depriving the agency of experience and threatening its role as the country's leading law
enforcement agency. And at a time when crime-fighting demands have become increasingly complex,
the agency is finding it difficult to attract much-needed specialists, such as engineers and lawyers, as
agents. "We're close to the crisis point," said James F. Ahearn, special agent in charge of the FBI in
Boston.
Officials at other law enforcement agencies, such as the Drug Enforcement Administration, voiced similar
concerns in interviews last week. At a time when the demands on law enforcement have never been greater,
they say, the ability to attract and keep agents has never been lower. The problem is particularly acute in
Boston, where the high cost of living has significantly eroded the agency's ability to retain its employees.
The projected attrition rate among law enforcement agents is in part the product of demography: Hundreds
of agents recruited in the 1960s and '70s are nearing the mandatory retirement age of 55. At the FBI, 2,650
out of 9,500 agents nationwide will be eligible to retire next year. Almost half of the agents are due to retire
during the next decade.
In Boston, 38 percent of the approximately 200 agents will be eligible for retirement in the next five years.
But among those scheduled to retire are the most senior officials, which will leave the agency without top
managerial and investigative skills, officials said. Twenty out of the 59 special agents in charge of the
nation's FBI offices are eligible to retire, Ahearn said. In Boston, the FBI's two most experienced agents
on organized crime will be eligible for retirement in a year, he added. At the Drug Enforcement Administration,
a similar block of experienced agents is soon expected to retire. "I would say in the vicinity of three to five
years, we're facing some serious shortages in management talent," said John J. Coleman Jr., the special
agent in charge of the Drug Enforcement Administration in Boston. The district director for the Internal
Revenue Service in Boston, Gerard Esposito, agreed. "The people who are leaving are generally our
most proficient people," said Esposito, referring to the agency's criminal investigation staff. "It takes a
long time to develop these skills."
The loss of a generation of highly experienced agents does come at a time when recruitment remains brisk.
For example, the Drug Enforcement Administration has had between 1,200 and 1,500 applicants for 135
positions so far in fiscal 1989, according to an agency spokesman. But new agents, no matter how many
are recruited, cannot replace the expertise of older agents who are leaving, officials say. In addition, the
demands on law enforcement agencies have become more complex. The Drug Enforcement Administration
is in the midst of an international drug war, calling for agents with sophisticated language abilities and other
skills. And the FBI must gear up to fight increasingly sophisticated commodities fraud or undertake complex
foreign counterintelligence. Consequently, lawyers, foreign language specialists, engineers and others are
in high demand at federal law enforcement agencies. But salaries for such skilled personnel cannot
compete with the private sector. "You can imagine us trying to convince an electrical engineer to come
into the bureau for $29,000," said Ahearn, citing the agency's base salary. The highest salaries, paid to
special agents in charge, are approximately $67,000 to $82,000.
Not only can federal law enforcement agencies not recruit highly specialized talent, but it also is becoming
more difficult to persuade qualified agents to stay in government service. For the first time, the number of
FBI agents who are resigning is outpacing the number of those who retire, said Ahearn. "You never heard
of an FBI agent resigning; it was always a career service," said Ahearn. "Everybody always did their full
tenure. That's now no longer true."
Patrick Hogan, 42, was one FBI agent whose finances forced him to leave. "It wasn't easy to walk away
from 12 years of experience in the bureau; it becomes a way of life," said Hogan. "But my family comes
first." Hogan, who had worked at the FBI in public corruption and counterintelligence, said the high cost
of living prompted him to resign in 1988 for a job in security and investigations at Digital Equipment Corp.
"In the old days, an Irish-Catholic guy with eight kids was the heart and soul of the FBI," Hogan said. "But
now you have to take care of your family first." The resignations are shattering the familial esprit de corps
that agents have shared since the FBI's founding in 1908. The turnover also jeopardizes the secrecy
and safety of the agency. Some federal agents are leaving to join state and local law enforcement
agencies, where salaries are higher, federal officials said. Opinions on future recruitment vary with each
agency. A DEA spokesman, Frank Shults, says the agency's special mission makes the recruitment picture
less bleak. "It's in our favor that this is exclusively a drug enforcement agency," Shults said. "There are
enough people out there willing to make a sacrifice to make this a career." But the problem is serious
enough to have drawn congressional attention. A law enforcement commission, composed of the heads
of federal law enforcement agencies, was established in 1987 by Sen. Dennis DeConcini (D-Ariz.) to study
the salary problem. "We're going to have a critical problem on our hands within five years," said Tim
Carlsgaard, an aide to DeConcini. "Everybody's talking about hiring more people. Nobody's taking notice
of the attrition rate."
The commission is expected to make a report to Congress in November. But Carlsgaard said that although
the group is likely to ask for billions of dollars in additional salaries, "the money simply isn't there."
One option could be special cost-of-living adjustments for agents in high-cost areas, as was recently
done in New York City. But in the interim, law enforcement agencies are bracing for the worst.
"Our crunch isn't here right now," said Ahearn, "but a couple of years down the road it will be." |