If you're dealing with local perception, then yes, every PCV, missionary, NGO Worker etc is a CIA agent. When I was in the Peace Corps (many many years ago) it was simply taken for granted that we had something to do with the CIA. Of course it didn't make sense, but people believed it anyway: people believe all kinds of stuff.
Anyone actually familiar with the way the Peace Corps works (and the way the CIA works) will see immediately that PCV cover would be far from ideal - in fact close to useless - for an intelligence operation. Of course that reality will not affect perceptions at all.
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