Copyright 2000 eMediaMillWorks, Inc.
(f/k/a Federal
Document Clearing House, Inc.)
FDCH Political Transcripts
March 9, 2000, Thursday
TYPE: COMMITTEE HEARING
LENGTH: 19700 words
COMMITTEE:
MILITARY READINESS SUBCOMMITTEE OF THE
HOUSE ARMED SERVICES
HEADLINE: U.S. REPRESENTATIVE HERBERT BATEMAN (R-VA)
HOLDS HEARING WITH THE CIVIL SERVICE SUBCOMMITTEE OF THE
HOUSE
GOVERNMENT REFORM COMMITTEE ON CIVILIAN PERSONNEL READINESS
LOCATION: WASHINGTON, D.C.
BODY: HOUSE ARMED SERVICES COMMITTEE'S SUBCOMMITTEE
ON MILITARY
READINESS HOLDS A JOINT HEARING WITH HOUSE GOVERNMENT REFORM
COMMITTEE'S SUBCOMMITTEE ON CIVIL SERVICE ON CIVILIAN
PERSONNEL
READINESS
MARCH 9, 2000
SPEAKERS:
ARMED SERVICES
COMMITTEE:
U.S. REPRESENTATIVE HERBERT H. BATEMAN (R-VA), CHAIRMAN
U.S. REPRESENTATIVE SAXBY CHAMBLISS (R-GA)
U.S. REPRESENTATIVE
WALTER B. JONES, JR. (R-NC)
U.S. REPRESENTATIVE BOB RILEY (R-AL)
U.S. REPRESENTATIVE DUNCAN HUNTER (R-CA)
U.S. REPRESENTATIVE
JAMES V. HANSEN (R-UT)
U.S. REPRESENTATIVE CURT WELDON (R-PA)
U.S. REPRESENTATIVE TILLIE K. FOWLER (R-FL)
U.S. REPRESENTATIVE
JAMES M. TALENT (R-MO)
U.S. REPRESENTATIVE TERRY EVERETT (R-AL)
U.S. REPRESENTATIVE JIM GIBBONS (R-NV)
U.S. REPRESENTATIVE DON
SHERWOOD (R-PA)
U.S. REPRESENTATIVE SOLOMON P. ORTIZ (D-TX), RANKING
MEMBER
U.S. REPRESENTATIVE NORMAN SISISKY (D-VA)
U.S.
REPRESENTATIVE JOHN M. SPRATT, JR. (D-SC)
U.S. REPRESENTATIVE OWEN B.
PICKETT (D-VA)
U.S. DELEGATE ROBERT A. UNDERWOOD (DEL-GU)
U.S.
REPRESENTATIVE ROD BLAGOJEVICH (D-IL)
U.S. REPRESENTATIVE ADAM SMITH
(D-WA)
U.S. REPRESENTATIVE JAMES H. MALONEY (D-CT)
U.S.
REPRESENTATIVE MIKE MCINTYRE (D-NC)
U.S. REPRESENTATIVE CIRO D.
RODRIGUEZ (D-TX)
GOVERNMENT REFORM COMMITTEE:
U.S.
REPRESENTATIVE JOE SCARBOROUGH (R-FL), CHAIRMAN
U.S. REPRESENTATIVE ASA
HUTCHINSON (R-AR)
U.S. REPRESENTATIVE JOHN MICA (R-FL)
U.S.
REPRESENTATIVE CONNIE MORELLA (R-MD)
U.S. REPRESENTATIVE DAN MILLER
(R-FL)
U.S. REPRESENTATIVE ELIJAH CUMMINGS (D-MD)
U.S.
REPRESENTATIVE ELEANOR HOLMES-NORTON (DEL-DC)
U.S. REPRESENTATIVE THOMAS
ALLEN (D-ME)
FRANK CIPOLLA, DIRECTOR, CENTER FOR HUMAN RESOURCES
MANAGEMENT, NATIONAL ACADEMY OF PUBLIC
ADMINISTRATION
MICHAEL BROSTEK, ASSOCIATE DIRECTOR, FEDERAL MANAGEMENT
AND
WORKFORCE ISSUES, U.S. GENERAL ACCOUNTING
OFFICE
BARRY
HOLMAN, ASSOCIATE DIRECTOR, DEFENSE MANAGEMENT
ISSUES, U.S. GENERAL
ACCOUNTING OFFICE
DR. DIANE M. DISNEY, DEPUTY ASSISTANT SECRETARY OF
DEFENSE (CIVILIAN PERSONNEL POLICY)
DAVID L. SNYDER, DEPUTY
ASSISTANT SECRETARY OF THE
ARMY (CIVILIAN PERSONNEL POLICY)
BETTY S. WELCH, DEPUTY ASSISTANT SECRETARY OF THE NAVY
(CIVILIAN PERSONNEL/EEO)
MARY LOU KEENER, DEPUTY ASSISTANT
SECRETARY OF THE AIR
FORCE (FORCE MANAGEMENT AND PERSONNEL)
DAVID O. COOKE, DIRECTOR OF ADMINISTRATION AND
MANAGEMENT,
OFFICE OF THE SECRETARY OF
DEFENSE
*
BATEMAN: The
hearing will come to order.
Our colleagues from the Civil Service
Subcommittee of the Government Reform Committee joined us today for the first
combined hearing of these two subcommittees, at least, within my memory.
I particularly welcome Congressman John Mica of Florida who is
substituting for Chairman Scarborough in view of Chairman Scarborough's illness.
I'm also pleased to welcome the ranking member, Mr. Cummings, and
the other members of the subcommittee as partners in our effort to oversee the
Department of Defense management of its civilian personnel workforce.
I recognize that many of the civilian personnel provisions we
include each year in our Defense Authorization bill come within the jurisdiction
of the Civil Service Subcommittee. And you've always been most cooperative and
generous in your assistance to us.
The joint hearing provides our
witnesses a unique opportunity to discuss issues before both committees of
jurisdiction. One of the primary reasons we scheduled this hearing is to discuss
the effect of the civilian drawdown on the Department of Defense civilian
workforce and ultimately, its affect on the readiness of our military forces.
Few Americans understand that the Department of Defense has reduced
its civilian workforce by more than 38 percent over the past 10 years compared
with a 35 percent reduction in active duty military forces. Many, many skilled
workers across the country and overseas have left the Department of Defense
employment permanently.
I am also concerned that these rather
dramatic reductions have occurred in such a way that the Department released
needed personnel who possessed essential skills. It is time to examine our
civilian work force to ensure that we will have the people with the skills we
need in the future.
In that regard, I would like our witnesses to
provide the subcommittee an assessment of their current skills inventory, and
what additional tools they may need, if any, to properly align the workforce of
their respective service.
Additionally, I would like some assurances
that the Department of Defense and the military services have planned for the
future. In other words, do they have a template for the skills and the workers
needed to support future operations so that younger workers can begin to be
hired and trained now to meet those future needs? If you do not have a clear
vision of where you need to go, it is difficult for this committee to
intelligently address issues and implement solutions.
In addition,
we'll continue to listen to your concern about the Department's aging workforce,
as an increasing number of workers are eligible to retire. The question is, will
you need their skills when they do retire and do you have someone in the
pipeline to fill those essential positions? I would expect that some very
careful analysis has been done before you ask our two subcommittees to consider
measures changing long-established personnel policies to solve a problem that so
far, has not been demonstrated or proven.
Finally, over the years,
the Department has requested and received authority to operate a variety of
civilian personnel demonstration projects. I would like to hear what has been
learned from the existing demonstrations.
From the reactions we get
back home when base closures are considered or reductions in force are
announced, it is apparent that federal jobs are still highly coveted. Therefore,
it seems counterintuitive that we would have difficulty hiring new workers. That
is why I would like to see some careful analysis behind any request for new
authorities, and I would insist that any new authorities be carefully targeted
at skills the Department has demonstrated that it cannot hire. For example, the
Air Force reports having difficulty hiring engineers. The Army has a different
experience. Why is that?
Today, the subcommittees will hear
testimony from experts in workforce shaping issues from the civilian personnel
policy directors of the Department.
BATEMAN: It is my belief
that our hearing today will assist us in making the necessary decisions for our
civilian workforce in the future.
Before proceeding to our
witnesses, let me now recognize the gentleman from Florida, Mr. Mica, for his
opening remarks.
MICA: Well, thank you, Mr. Chairman.
I
appreciate this opportunity to join you and members of your subcommittee at this
hearing this afternoon.
I look forward to working with you and also
the Civil Service Subcommittee, Chairman Scarborough, who unfortunately cannot
be with us today because of his injury. And I'm pleased to join also, ranking
members Ortiz and also, Mr. Cummings. Mr. Cummings has also been ranking on
Civil Service and very active in these issues. It's particularly important that
we have leaders like this as we address the issues of civilian personnel
readiness.
This is a vitally important matter, Mr. Chairman, and I
commend you for initiating this inquiry. As the former chairman of the Civil
Service Subcommittee, I also want to thank you for the cooperation my staff and
I have received from you and your staff on civilian personnel issues in the past
Congresses. I'm confident that the close working relationship will continue as
evidenced today by this joint hearing.
Today, we'll examine the
state of readiness of civilian workforce that supports our service men and
women. This hearing is really the beginning of a process that will continue as
our subcommittees work through a variety of civilian workforce proposals in
conjunction with this year's civilian -- with this year's Defense Authorization
bill. I look forward to hearing the witnesses today, all of whom bring a great
deal of expertise on these civil service issues and civilian defense issues.
Mr. Chairman, there are several matters that I ask the Department of
Defense and others to address as we consider the readiness issue today and
throughout the remainder of this congress. One, is the key -- one key issue is
the effect of the dramatic reduction in civilian personnel that the Department
of Defense, which you referred to in your opening statement, and also that and
all of our military departments. Again, putting that reduction in perspective,
Mr. Chairman, the drop of a full-time equivalent employment at those agencies
will account for 73 percent of the net personnel reduction government-wide by
the end of FY 2001.
We need to know, Mr. Chairman, how this drawdown
has affected the ability of our current workforce to support America's military
forces now. If there are critical short-term problems that must be addressed
now, the witnesses should identify them and provide us with concrete proposals
for dealing with them.
Mr. Chairman, we've heard a lot about the
threat of a hollow military and this Congress has taken steps to turn that
problem around. America must always have the best fighting forces in the world.
The men and women in our armed forces must be the best-trained that we know and
the best-equipped. But an inadequate civilian support system will degrade the
performance of even the best military force in the world. That's why we also
need to be concerned about a hollow support system.
Together with
the administration and everyone on both sides of the aisle, we must determine
the optimum mix of skills and the optimum mix of contractors and employees
needed to preserve our nation's strength and security.
As we look to
the future, Mr. Chairman, it's important that Congress make certain the
Department of Defense and the military departments are integrating civilian
workforce planning with the military's strategic planning. Until we know what
kind of military missions and forces we must plan for, neither the Congress nor
the administration can reasonably begin assessing our civilian workforce needs.
I will expect today's witnesses to demonstrate that their civilian
personnel strategies are, in fact, solidly tied to anticipated military needs. I
will also expect a clear explanation of why such things as an older workforce
are considered problems and not simply facts or experienced personnel to deal
with. And I also want to know what agencies are doing and plan to do to train,
where necessary, re-train their existing employees.
Another key
issue that I'd like our witnesses to address, is whether today's civilian
benefit structure should be modified to attract highly qualified and motivated
individuals. Do we need more flexible benefits and more portable retirement
systems to help us compete for highly skilled workers, particularly younger
workers who do not necessarily plan to make their careers with just one
employer?
And I'm pleased to see, also, the gentleman from Virginia
here that I have worked with in the past in trying to bring us into the 21st
century in that regard. I appreciate his efforts and sorry to see him retiring
and you retiring and anyone else who's retiring that's done such a good job
towards these efforts.
So, Mr. Chairman, I'll look forward to
receiving answers to these questions and working with you in this joint effort
today.
BATEMAN: Thank you very much, Mr. Mica.
And now,
I'd like to recognize my good friend and the ranking Democratic member of the
Readiness Subcommittee, Solomon Ortiz of Texas.
ORTIZ: Thank you,
Mr. Chairman, for agreeing to hold this hearing today. And of course we're happy
to have our colleagues with us.
This is the first civilian personnel
readiness we have conducted in quite some time. It does not mean that we have
not been enacting legislation impacting on the matter during this time. It is
more of a case of the absence of an opportunity to look at civilian personnel
policies and practices in an integrated manner.
I join you in
welcoming all of our witnesses here today. I also appreciate the opportunity to
explore this important issue with our colleagues on the Civil Service
Subcommittee of the Government Reform Committee.
Mr. Chairman, for
there are many civilian personnel issues that loom before us, I am very much
concerned with the problem that challenges and challenges associated with a
dwindling and an aging workforce. I have also heard some of my colleagues
express their concerns about these matters.
During preparation for
this hearing, I was reminded that the United States will reportedly be the last
of the developed nations to experience the aging of its population. By 2025,
nearly 18 percent of all Americans will be over the age of 65. This aging
population not only affects the demands for funds for non-defense activities, it
also impacts on the quantity and quality of civilian personnel we will be able
to attract and to retain to meet the Department's technical and management
challenges.
I am most familiar with the situation at Corpus Christi
Army Depot, where today, there are no employees under the age of 30. The
significance of these facts is that is easier for a 30-year-old to climb around
an airframe in the (inaudible) degree heat of South's summer, than it is for a
50- to 60-year-old. And I can vie for that.
From my study of the
Army Material Command civilian personnel status, I found that in six critical
career programs, 72 percent of the workforce is over 40 and 35 percent is above
age 50. Today, the average is 48.7. By the year 2004, some 50 percent of the
Army Material Command civilian workforce will be retirement eligible. I think
those statistics by themselves tell us a lot.
Notwithstanding the
current trend toward outsourcing privatization of functions that have
traditionally been performed by DOD civilians, the promised increased
reliability of new equipment and the innovative (inaudible) of management
concept that we hear about, I am convinced that there will always be a need for
a core DOD civilian workforce. I am not certain that the department is in the
best posture at this time to prepare for the future while there is still time.
It is not the same in DOD as it is in some sectors of the Department
of Energy. In the Department of Energy, we are scrambling to capture the
experiences of personnel who work nuclear weapons issues before they disappear.
But the impact could be the same if we do not take the steps
necessary to make sure that we have in place the right policies and programs to
meet our future civilian workforce requirement.
I know that we have
had programs in existence for some years to design, to attract, train and retain
white-collar employees. And the department tells me that those programs have
been useful. But when I inquire about blue-collared technical employees, I find
a different story. Some of the skills needed require long lead times to produce
these highly trained technicians we need to maintain the increasingly complex
equipment we are procuring. Some of the same skills are required to maintain the
legacy equipment that we will retain in the inventory for some time.
It is my assessment that we just do not have sufficient programs in
place to meet future requirements. It is for that reason, I am proposing that
the Department of the Army conduct a pilot apprentice program at Army depots
that will address the future needs for some already known, hard to find
blue-collar technicians.
The Army Material Command has provided a
detailed listing of what skills are wanting, depot by depot. The outcome of this
program will be useful in assessing the strategies designed to solve this
problem in other places in the department.
Mr. Chairman, there are
some tasks that I am convinced must be accomplished sooner, rather than later.
We have to understand the potential implications of aging population on national
security. We need to better understand what are our future workforce
requirements, so that appropriate policies and plans can be put in place to
address the totality of the problem.
There is a need to understand
the impact of the drawdowns on productivity as well as our ability to attract
and retain the quality and quantity workers that we need. We need to understand
the linkage between the perceived problem and the separate piece of legislation
we have enacted in the department's policies and practices.
We need
to develop legislation, if needed, to provide the tools needed to properly shape
the workforce. We need to understand the cost so that we can ensure that in
integrated investment strategy is developed and in place to guide the
implementation of rational and achievable civilian personnel goals. This is not
a case of mission impossible. And I know it is not something that can be
accomplished without considerable effort, but it must be done. We must make the
investment or we will not provide for the future workforce capable of meeting
technical and management challenges, all to the detriment of readiness.
Mr. Chairman, I thank you for your sight and for your vision. And
thank you for holding this hearing today.
Thank you, Mr. Chairman.
BATEMAN: Thank you, Mr. Ortiz.
And now, I'm pleased to
recognize the ranking member of the Civil Service Subcommittee, Mr. Elijah
Cummings of Maryland.
CUMMINGS: Thank you very much, Mr. Chairman
and ranking member Ortiz, of the Military Readiness Subcommittee and certainly
to Mr. Mica and Chairman Scarborough of our Civil Service Committee. I really do
appreciate you scheduling this hearing.
This hearing sends a message
to federal agencies that it is important to plan for the future and develop a
strategic approach to manage, train, retain, develop, hire, pay and evaluate
their most valuable assets, its employees.
As ranking member of the
Civil Service Subcommittee, I'm aware of the impact of downsizing, contracting
out, reductions in force and an aging workforce can have on employees and the
management of employees. Morale suffers due to limited career and promotion
opportunities. People become insecure about their jobs and are forced to work
longer hours to accomplish the same amount of work. When this occurs, not only
do employees suffer, but the agency and its mission do as well. This situation
is exacerbated in the case of the Department of Defense.
In 1996,
the Government Accounting Office reported that between the years of 1987 and
1995, DOD reduced its civilian workforce by approximately 25 percent or about
284,000 personnel. GAO noted that by the time DOD finishes its downsizing plans
in fiscal year 2001, DOD would have reduced its civilian workforce to about
728,300 personnel, almost 35 percent below the 1987 end-strength and about 16
percent below the 1995 end-strength.
When the GAO report was issued,
DOD reported that civilian downsizing had not adversely affected military
readiness at the installations visited by GAO. However, DOD did state that if
not managed properly in the future, civilian downsizing could have an adverse
effect on combat units.
I look forward to hearing from DOD as to the
current status of its downsizing efforts, its impact on civilian employees and
its strategic plan to manage its workforce in the future.
CUMMINGS: Any testimony the other witnesses can offer to help us
understand this issue is most appreciated.
Thank you very much.
BATEMAN: Thank you, Mr. Cummings.
At this point, I'd
like to ask unanimous consent to have Chairman Scarborough's statement made a
part of the record.
Now, I'd like to welcome our first panel of
witnesses who are expert in the work-shaping issues that we are principally
concerned with today.
The first panel consists of Mr. Frank Cipolla,
Director of the Center for Human Resources Management of the National Academy of
Public Administration; Mr. Michael Brostek, Associate Director, Federal
Management and Workforce Issues for the General Accounting Office who is
accompanied by Mr. Barry Holman, Associate Director, Defense Management Issues
of the General Accounting Office.
Gentlemen, we welcome you. All of
your written statements will be made a part of the record.
And now,
Mr. Cipolla, I'll call on you to proceed as you may choose.
CIPOLLA:
Thank you, Mr. Chairman.
We, as you mentioned, did submit a detailed
statement for the record, so at this time, I'd like to just give a brief oral
summary.
We appreciate the opportunity to appear today to discuss
civilian personnel readiness.
The National Academy of Public
Administration is an independent, non-profit, non-partisan organization
chartered by the Congress to improve governance. And we hope to be able to
provide some outside DOD perspectives on this issue, which is of extreme
importance now to most federal agencies, including DOD.
I would like
to, before I proceed, acknowledge the presence today of the newly appointed
president of the National Academy, someone you know, I know, Mr. Robert O'Neill
(ph), who is here in the audience.
BATEMEN: Congratulate the Academy
on its choice and very, very pleased to see my friend, Bob O'Neill (ph) again.
CIPOLLA: Thank you, sir.
We have been putting a good
deal of priority on this subject of workforce planning and workforce shaping and
a good bit of our recent work has included a number of subjects that are
relevant to this hearing.
I've included a listing of several recent
studies and reports on these subjects. I can make those available for the
record, if you wish.
BATEMAN: We'd be pleased to have them.
CIPOLLA: Good. We'll do that.
Some background --
civilian personnel readiness is an important subject, as I mentioned, not just
for DOD, but certainly including DOD. Projecting the role and the composition of
the civilian component of the total of the total force is a continuing
challenge, even more so as agencies look ahead and attempt to build the
workforce from where downsizing and restructuring left it.
There is
no doubt that the task faced by DOD and its components to assure that the right
people are in the right place at the right time, is more daunting than ever.
They are searching for answers to questions about what civilians will be doing,
what is the right civilian-military mix, what are the competencies or skill sets
that will be needed, how will the skills and knowledge of the current workforce
be updated, what is the best approach to recruiting for scarce skills, and what
needs to be done to retain senior-level expertise in key occupations.
Most federal agencies are facing these or similar questions after
spending the better part of the last decade trying to manage downsizing, keeping
the adverse impact on people to a minimum, and working to get maximum
productively from the workforce that is left, all while still adhering to merit
principles that have been the foundation of federal employment since 1883.
Federal managers now find themselves in a "war for talent," trying to compete in
a tough market and making decisions about human capital investment. Government
and the private sector alike are discovering that they can't address these
questions in a rational and defensible way without instituting a systematic
process of workforce planning. Last year, the Academy looked at 17 federal
agencies and found that most of them were beginning to do that.
I'd
like to share some of that information, along with primarily some key
conclusions about this subject. And I'll just state those at this point and then
if you have questions, I'd be happy to comment on them. They're detailed in the
in the prepared statement.
The first of those is that workforce
requirements must be linked to the agency's overall strategic plans. That's
already been said in a number of ways, but we can't over-stress that point.
Agency strategic plans must have a people component, that needs to be part of
the process.
The second point is that workforce planning must
include the collection and analysis of data about the external environment as
well as information about the current workforce. We've already heard some of
those trends that are going to be shaping, already shaping the workforce and the
workplace over the next five to 10 years: skill shortages, increasing age of the
workforce, increasing retirement eligibility, the workforce becoming more
diverse, technology making possible alternative work arrangements, and the newer
generations of employees having different values and expectations about work in
the workplace.
The third point is that projections of future
workforce requirements must be expressed in terms of needed skills and
competencies, not just numbers of full-time permanent employees.
Fourth, decisions on the composition of the future workforce should
consider the use of flexible employment arrangements. Increasingly, the right
people for getting the job done in the future will be a mix of workers and a mix
of employment arrangements.
Fifth, managers must be given maximum
flexibility in managing work and assigning staff to meet changing mission and
program requirements. The civilian personnel system, to the extent that it is
possible, must accommodate the requirement for that flexibility.
Sixth point, human capital development and continuous learning
should be viewed as an organizational investment and given a high strategic
priority. Federal agencies need to transform training programs into an ongoing
process of re-skilling and re-tooling the workforce to acquire and maintain the
competencies needed to keep up the with the changes in mission technology and
the content of work itself.
And the seventh and final point relates
to retirement incentives. Retirement incentives should be used selectively to
support restructuring and to retain needed talent in scarce skill occupations.
And we could elaborate on that, but I think I've completed my time.
I'd be happy to answer any questions you have.
BATEMAN:
Thank you very much, Mr. Cipolla.
And now, we'd be very pleased to
hear from Mr. Brostek.
BROSTEK: Thank you, Mr. Chairman.
I'm pleased to be here to discuss why this is an opportune time to
assess human capital management at the Department of Defense and a
self-assessment check-list that GAO has developed to help agency leaders focus
on improving the management of their workforce.
My observations on
DOD's human capital management situation are based on work we have done at DOD
throughout the 1990s that provide us some perspectives on the issues that have
arisen during downsizing, but do not present a comprehensive assessment of
workforce planning at the Department of Defense.
However, in
summary, several factors suggest that this is an important time for DOD to
assess its human capital practices. Public and private high-performance
organizations recognize that people are their key asset. It is through the
talents and dedicated work of staff that missions get accomplished. Therefore
sound management calls for continually reassessing human capital management,
especially in a dynamic environment, and surely, DOD is in a dynamic
environment.
DOD's workforce, as has been mentioned, is about 36
percent smaller now than it was in 1989 and it's likely to get smaller. In part,
due to these reductions, imbalances exist in the age distribution of DOD staff.
The average age of civilian staff has been increasing, while the proportion of
younger staff, who are the pipeline of future talent and leadership has been
dropping.
DOD reform initiatives are also changing the way the
department does business and new business practices affect the competencies that
employees must have. Together, these changes suggest that DOD faces challenges
in ensuring that it will have the talented workforce that it needs in the next
decade.
To help agencies assess their human capital management and
to deal with these challenges, we developed a five-part assessment framework
that we believe can be useful in aligning human capital management with
agencies' missions, goals and strategies. I'll talk very briefly about each
portion of that framework.
The first part starts with strategic
planning because decisions made today determine whether an agency will have the
workforce that it needs in the future. A workforce cannot be reshaped overnight.
For instance, if an agency's strategic plan calls for a greater reliance on
information technology, there are implications for the competencies that the
workforce will need. The actions needed to reshape the workforce, such as
training, hiring employees with requisite skills and possibly separating
employees whose skill sets are no longer well matched to agency needs must be
carefully designed and implemented.
Next, our framework calls for
aligning an agency's human capital policies and practices to support the
agency's strategy. This is where detailed workforce planning is done. Looking at
the strategies for five years or more into the future, the agency defines the
knowledge skills and abilities that employees will need, as well as how many
employees will be needed at that time.
Those knowledge skills and
abilities are then assessed in the current workforce and projections are done of
workforce attrition due to things like retirement and resignations and other
factors. Then the gap needs to be assessed between these skills and abilities
and size of the current workforce and the similar qualities of the workforce in
the future. Once that gap measurement has been made, an agency is finally
prepared to actually develop a plan to transition its current workforce to that
which it's going to need in the future.
The third part of our
framework emphasizes that agencies must pro-actively develop their future
leadership. The agency must begin by determining the qualities and
characteristics that are most needed in its future leaders. Leaders develop over
long periods of time and therefore, agencies need to identify potential leaders
early and provide them with a variety of professional development and learning
opportunities throughout their careers.
The fourth element of the
framework focuses on ensuring that agencies recruit, develop and retain the
employees with skill necessary to support mission accomplishment. In a sense,
this the execution of the workforce plan. The workforce plan identified the
types and numbers of employees needed. At this point, agencies need to go out
and identify by targeting the individuals that have the skills and abilities
that are needed and hiring them. And by targeting training to the current
workforce, to move their skills and abilities to those that are required to
implement the plan that the agency has adopted for executing its mission.
Finally, the framework focuses on ensuring that an agency's human
capital practices and policies create a culture in which high performance is
expected and supported. Human capital practices should enable and motivate
employees to achieve high performance. Achieving high performance may be aided
by a performance management system that links, to the extent possible,
individual performance expectations and rewards to the success of the
organization itself.
In conclusion, the dynamic changes in DOD over
the past decade and the continuing changes likely this decade, underscore the
importance of a well-developed human capital management strategy to DOD's future
mission accomplishment. It is vitally important to start by looking to the
future, determining what type of workforce will be needed for the future. When
this is done, DOD can develop plans for creating that workforce and following up
with the actions and investments needed so that when the future arrives, the
right employees with the right skills, training, tools and performance
incentives will be on hand to greet that future.
That concludes my
statement and Mr. Holman and I will be happy to answer any questions you have.
BATEMAN: Thanks, Mr. Brostek.
Mr. Holman, we'd be glad
to hear from you if you have anything you'd like to add at this time.
HOLMAN: No separate statement, Mr. Chairman.
BATEMAN:
OK.
HOLMAN: Just the observation that we have done a good body of
work over the years, looking at a variety of Defense business practices,
outsourcing, depot maintenance and issues like that. And we know the issue of
personnel -- civilian personnel impacts from a drawdown readiness aging
workforce are issues that are very much out there that are increasing concerns
to people. So we're happy to participate in this hearing today because I think
it is an important issue. That it does require some planning to deal with.
BATEMAN: Thank you, Mr. Holman.
BATEMAN: Mr.
Brostek, let me ask you this: You've spoken of workforce plans for the
utilization of human capital, which I think is very interesting terminology. At
what levels does this take place? Is this done by someone in the office of the
secretary of defense? Or is it done there plus in each of the military
departments? Or is it within systems commands or major commands within each of
the services? Where does the workforce plan begin and end?
BROSTEK:
Well, I think it's going to have to occur throughout an organization the size of
DOD. It has, as you know, a vast number of employees. About 40 percent of the
federal civilian workforce is in DOD. So I think it's impractical to expect that
all the workforce planning could be done out of one central location.
On the other hand, the important reference point for all of the
workforce planning that needs to be done is a strategy that the department
adopts for accomplishing of defending the country. And that's a department-wide
policy that needs to be set. And then the individual planning that needs to be
done by the various components is in relation to that strategic plan that was
adopted, the approach that the department wants to follow to carry out its
mission.
BATEMAN: We'll be hearing from Department of Defense
witnesses shortly, but do you have any insights as to what degree -- elements of
the Department of Defense or the office of the secretary of defense have been
come engaged in what you would call workforce planning?
BROSTEK:
Well, Mr. Chairman, I have to admit that we haven't done a comprehensive
assessment of the department. But I do have an extract from the Defense Science
Board Task Force report that came out just this past February that suggests that
there is a bit of a gap in workforce planning.
If I can just quote a
little piece of this. The report says: that today, there is no overarching
framework within which future DOD workforce is being planned. An overarching
strategic vision is needed that identifies the kind of capabilities the DOD will
need in the future, the best way to provide those capabilities and the changes
in human resources planning and programs that will be required.
This
is a good statement of what needs to be done and it is also apparently a
statement that, in the opinion of the Defense Science Board, that has yet to be
done.
BATEMAN: What was the date of that statement?
BROSTEK: February 2000.
BATEMAN: Thank you.
Mr. Cipolla, in your written statement, you made reference to a
phenomena called, "telecommuting."
CIPOLLA: Yes, sir.
BATEMAN: Have you done any particular study as to the effectiveness
and productivity of workers who performed by the telecommuting phenomena?
CIPOLLA: We have, and among the reports that I mentioned earlier,
there is some coverage of that. Recently, we had in one agency a review of
telecommuting arrangements that were, in fact, negotiated with the labor union
involved. And we participated in the assessment after the arrangements had been
underway for some time.
This was an organization that was
essentially an information technology organization, so it was conducive -- the
nature of the work was conducive to this sort of thing. And the overall
assessment was that it was working quite well in the view of both the employees
and the unions and the customers who were in receipt of the services of the
organization. As a generalization, it varies, and it is an extreme culture
challenge in some organizations and less so in others. And I guess that's the
best way I can describe it.
BATEMAN: I have two telecommuting
centers in my district. And of course, most of the people -- almost all of them
-- are federal employees. My general understanding is that it's very, very
highly regarded by the federal employees. I'm more curious to know whether or
not the federal workforce managers are sympathetic to and anxious to have their
employees participate in that manner. But I guess our government witnesses can
help with that.
CIPOLLA: Well, frankly, our experience has been that
many managers find it difficult for a lot of the reasons that you might imagine,
all associated with a loss of control in some form or another.
BROSTEK: We did some work on that -- if I can intercede for a
minute...
BATEMAN: Yes, please.
BROSTEK: ... about two
or three years ago, and we found a pretty similar result in the federal
government, that there's a mixed bag among federal managers. Some were quite
supportive, but others were less supportive. It was around a control issue.
Sometimes it was around whether or not the manager felt that they could really
assess the performance of the individual when they weren't in the office. If the
type of work that was done was not something that could be measured easily, the
supervisor was a little reluctant to let that not occur within his or her sight.
BATEMAN: Thank you.
Mr. Mica.
Mr. Ortiz. I'm
sorry.
ORTIZ: No problem. I would like for the witnesses -- maybe
all of you can give me some input. But do you think that evidence of an aging
workforce is a condition needing correction, particularly since most of the jobs
eliminated in the Department of Defense were lower- graded positions? Or is more
analysis needed?
CIPOLLA: On the surface, that would appear to be
the conclusion that one would reach. But at the same time, if we look closely at
the skills that we need -- which is what this subject is all about -- in an
organization now and in the future, an aging workforce isn't necessarily an
indication of something that needs to be corrected. In fact, retaining
senior-level expertise in some important occupational groups that are
particularly difficult to recruit for in today's highly competitive market is
something that needs to be included in strategic workforce planning. In other
words, we need a balance.
BROSTEK: I would roughly concur with what
Frank has said. The simple fact that the workforce is aging does not in itself
tell us that there is a major problem. What it does tell us is that there's a
flag here that some attention needs to be paid and some analysis done.
The situation in DOD is that the proportion of the workforce that's
below age 31 has dropped fairly dramatically, from about 17 percent in 1989 to
around six and a half percent now. Now, that may be an adequate number, but I
think it's something that needs to be investigated to ensure that people who are
needed to be the future leaders and talent of the organization are being grown.
We also have had some similar conclusions to what Mr. Cipolla was
saying about the folks who are towards the end of their career. Sometimes it's
to the advantage of the agency to offer various inducements to get people to
stay a bit longer. And we do know that a thing called "phased retirement" is
becoming more popular in the workforce of the country at large, where sometimes
we offer people the opportunity to come back on a part-time basis two or three
days a week, or something like that, to stay in the workforce and to keep that
institutional knowledge that was gained over a long career available to the
organization.
HOLMAN: I would agree with what's been said. Just
echo, I think, the key word is balance in terms of requisite skills, grade,
allowance for succession planning as we see the larger portion of the workforce
seeming to be grouped in the 40s and 50s or closer to the 50s and nearing
retirement the next few years. So it's a requirement for orderly succession
planning and balance in that workforce.
ORTIZ: And I just have one
more question because I would like for the other members to also ask questions.
But Mr. Cipolla, in your research, are you finding evidence of a
general shortage of technical workers in the United States? If that is so, given
the operation of the law of supply and demand, these skilled workers would be
able to shift, you know, from job to job almost at will. Wouldn't it make more
sense for the Department of Defense to contract for these workers as needed,
rather than trying to rewrite civil service law to provide extraordinary
authorities likely -- necessary to be able to maintain a large permanent staff?
CIPOLLA: Well, the premise that you stated, as you stated it, I
would have to agree with. First of all, the shortage does exist. There is no
sign that it's going to abate in the near future. The market is going to become
even more competitive for scientific, technological and particularly people who
have skills in information technology.
What you described is
actually happening to the point that if you looked at the numbers of the
information technology workforce across government agencies, you'd find that we
have now reached the point that there are more contract employees than there are
civil service employees. That in itself isn't bad, but it raises all kinds of
questions about our ability to manage that kind of a mix.
ORTIZ:
Thank you, Mr. Chairman.
BATEMAN: Thank you, Mr. Ortiz.
Now, Mr. Mica.
MICA: Thank you.
Just a
follow-up to that, Mr. Cipolla. I'm not in the military side of this. I've
watched it from the civilian side. But you don't have to be a military analyst
to see that we have a change in the world situation and that we're now doing
employments in sort of peaks and valleys. How do you maintain, like, a minimal
civilian force and then be in a position to meet these peaks unless you go to
contracting?
CIPOLLA: Well, I'm sure our colleagues from DOD are
going to talk about the strategic sourcing process, which is aimed at
identifying that core workforce or those core sets of competencies that are
needed. The problem is that they need to be continually updated and there needs
to be a systematic process that reassesses those determinations in the light of
what's going on in the environment.
MICA: You haven't answered my
question. With an active military, you can -- you know, we have a reserve force
and we call them up; with a civilian, you have a core. Then what's the model to
meet the peaks and valley with a civilian workforce if it isn't full- time
employees or contracts? How do you approach this and be prepared all the time?
What are the recommendations, before we hear from the other folks?
CIPOLLA: I don't know that there is a model that can be applied -- a
quantitative model that can be applied across a whole agency or even a major
part of it. What has to drive the determination about what the right mix is, is
an assessment of what is needed in terms of the core work. What are the
competencies that are required? If we can't get them from internally, within the
Department's workforce, we can't compete in the market, then maybe the best
response is to contract. But I don't know of any overriding model.
Mike, I don't know -- maybe GAO?
BROSTEK: I would agree
that one of the likely sources for dealing with considerable workload
fluctuations is contracting. It's certainly a legitimate source to turn to.
Agencies also have the ability to do some term hiring for employees,
bring them in for, I believe, it's up to a three-year period of time, as federal
employees to work on short-term projects. That can also be another mechanism for
dealing with a fluctuating workload situation. It might be a situation that's
desirable to use if you want to be creating government policy, doing inherently
governmental functions which you wouldn't normally want to -- you wouldn't ever
really want to contract out.
If I could jump back for just a second
to Mr. Ortiz' point -- which is relevant to your question, too, Mr. Mica -- to
the extent we do rely more and more on a contract workforce and we use them as
the reservoir of talent for dealing with workload fluctuations, we have to be
very careful to have reserved in the federal government sufficient oversight
capacity to monitor the cost and the quality of the contract services that we're
being provided. Because if we don't have the sufficient reservoir of capacity to
monitor the cost and quality, we can suffer some pretty unfortunate consequences
even through the contracting processes.
MICA: I have one more final
question, if I may, Mr. Chairman.
We spent somewhere in the
neighborhood, I think, of $4 billion on buyouts since '93. They came in and we
did all kinds of buyouts and I became concerned -- Mr. Cummings and I held
hearings on this -- about what was going on. Did we go overboard in the buyout
area? Are we now suffering from going beyond what we should have with the
buyouts or was it a balanced approach, Mr. Cipolla?
CIPOLLA: It's a
difficult question. Did we go overboard? It has to consider the requirements and
the targets that agencies were being expected to accomplish. Unfortunately, at
least in the early stages, buyouts were being used to avoid restructuring rather
than to support restructuring. And of course, our recommendation is that that
whole process be turned around. To the extent that we can identify what the
projected organization should be doing and structured accordingly if we need
buyouts, to either protect needed skills or eliminate those that we don't need,
then that's a more appropriate use. But the Defense Department didn't have those
kinds of options, especially in the early -- nor did any agency -- in the early
stages.
BROSTEK: We did, as you know, for you, Chairman Mica, a fair
body of work on the downsizing as it was occurring. And we did find that early
on in the downsizing period, not necessarily just through buyouts, but through
all the techniques that were used, that there was kind of a rush to meet the
target and there was inadequate planning to assure that when the target was met
-- that the reduced workforce -- that those who were left had the knowledge
skills and abilities necessary to perform the mission of the agency well.
Through legislation that you were involved with, as I recall, there
was a requirement that agencies begin doing better workforce planning before
they were able to offer any buyouts. And when we investigated agencies after
that legislation passed, we did see some improvement in the targeting of the
incentives for separations and thus, a better balance in the workforce as the
buyouts -- or as the downsizing continued.
Nevertheless, with what
we saw early on in the downsizing period and the lack of hiring for a number of
years during the '90s, we're likely to still have some imbalances in the skills
and abilities of the workforce.
MICA: Thank you.
Thank you, Mr. Chairman.
BATEMAN: Thank you, Mr. Mica.
Now, Mr. Cummings.
CUMMINGS: Yes, Mr. Brostek, just
following up on what you just talked about.
Do you think there's
enough authority now to be able to maintain that balance? In other words, if
you've got one area where you really need people and, say, for example,
technology, and then you have this other area that, just hypothetically, is more
towards the manual labor side and now the technology has just taken over, do you
have enough -- is there enough authority to be able to, for example, have a
buyout situation for the manual labor folk and keep the other folk without --
you know, the skilled computer folks -- without running into problems? Because
it seems like that's what you'd almost have to do.
BROSTEK: As I
understand it, there is not a blanket authority that exists now for agencies to
use buyouts to restructure or reshape their workforce. As a general practice,
when agencies have a buyout or early-out authority, it's generally connected
with a reduction in FTEs. Someone leaves with a buyout and they lose -- the
agency loses one position to fill.
There have been a number of
instances in which Congress has granted exceptions to that, specific legislation
that was crafted for a specific situation in which an agency was given the
ability to offer a buyout to restructure its workforce along the lines of what
you're talking about. Whether or not a blanket authority is needed, we haven't
really assessed that, but we certainly think it would be important for agencies
to kind of make a fact-based case for why they need that, even if there was a
blanket authority before they started using the buyouts again.
CUMMINGS: In my district, a private company, Domino Sugar, I think
it's about eight or nine years ago, moved to computerize itself. It's now about
90 percent computerized and they literally cut their workforce almost in half.
And they're able now to produce sugar, when you even throw in inflation, at the
same cost that it was in 1960. That's amazing.
So the question
becomes -- when they did that, though, they went through an intense retraining.
And so now you've got these guys that used to be toting these big bags of sugar
sitting up in an air- conditioned booth hitting buttons.
And you
know, it was just so interesting -- they're making more money, they're doing
fine. I'm just wondering how much emphasis have we put on retraining of the
personnel that are there. I think, you know, that kind of thing is good for
morale when people feel that they can now do something that they couldn't do
before. It also bodes well for upward mobility. All of those kinds of things, I
think, go to morale. And I think that that's something that we all have to be
concerned about with regard to employees in the federal government. I was just
where we were in those kind of things.
BROSTEK: Well, I think as
both Mr. Cipolla and I indicated in our statements, training and retraining of
the workforce, as the techniques used for carrying out the mission change, is a
very important part of workforce planning and the execution of workforce
planning. We haven't got a very good grasp on what the training situation is in
the executive branch. There isn't any central reporting of training
expenditures. We do have anecdotal evidence that during downsizing, training was
one of the areas that tended to be cut and cut fairly severely. So it is a
possibility that this is an area in which additional investments will be needed.
CUMMINGS: Now, Mr. Cipolla, you talked about flexible employment
arrangements. What do you mean by that?
CIPOLLA: Well, anything
other than the traditional 8 to 5 or five day a week, 40-hour workweek,
different tour arrangements. Even different -- like the telecommuting that we
talked about earlier, that term would include contracting, it would include the
contingent or the supplemental workforce, the temporary people that we would add
even from an employment agency, to meet a current need that we wouldn't need
over the long term.
In government -- in most agencies over the
years, we've tended to think of a full-time permanent employee as the only way
we fill a position. We fill it the same way it was vacated as opposed to looking
at different options, among those that I mention, for getting the work done.
CUMMINGS: Do we have in the -- I mean, what elements would we have
to have, say, an agency have to have for telecommuting to be effective and for
you to have -- apparently, it works in certain kinds of private industry. And I
guess the question becomes, is how do we make it work, say, for the federal
government or the various agencies within the government.
CIPOLLA:
It essentially has to be -- at least this is our experience -- a local matter
and one in which employees and managers can work out to their satisfaction, if
their union is recognized, they should be involved. Employees need to be
involved as early as possible in any proposal involving telecommuting. And there
may even need to be training for managers on the advantages and disadvantages of
going to a telecommuting arrangement. But it basically starts as a local process
where you can't communicate too much about what the intent is.
CUMMINGS: I don't have anything else. Thank you.
BATEMAN: Thank you, Mr. Cummings.
Now, Mr. Underwood.
UNDERWOOD: Thank you, Mr. Chairman. And thank you both of you for
having this hearing.
I want to ask a couple of questions, not so
much in the framework that is offered to us here as managing human capital, but
just more or less what happens to these human beings as a result of these
so-called cost saving measures. In particular, in the community I represent, A-
76, which has just been devastating because it's not only the largest A-76
effort, it really has altered the dynamics of federal employment and all the
kinds of issues that have been brought out here ranging from no more interest in
federal employment, to the aging, to the problems associated with priority
placement, what you do with an isolated community in which the only other option
that people have is to seek employment in the federal system 5,000 to 6,000
miles away.
So the questions I wanted to raise were, what -- in
terms of the thinking behind the kinds of protections or offers that we give to
federal employees who are experiencing these job cuts and include early
retirement and the buyouts and perhaps some attention to mobility -- the two
questions I have related to that.
And then I have yet another
question, is, what kind of thinking have either of you gentlemen given to what
kinds of additional programs or protections can be provided or offered to the
federal employees who are experiencing this?
And secondly, has
either one of you studied what has happened to people who exercised the right of
first refusal? What experiences do they undergo? Because the people who are --
this right of first refusal has been touted as a way to provide some worker
protection. And in this particular instance that we're just undergoing these
three months, people are being offered -- people who used to make $28,000 a year
are now being offered $17,000 a year. And so you know, I rather doubt that, one,
we have yet to see in the Armed Services Committee the savings that allegedly
come from that; and secondarily, we certainly see the cuts into the pay that are
given to these federal employees.
So could you address the issue of
what kind of general thinking is there on the issue of incentives or
protections? And also, what happens to the right of first refusal?
HOLMAN: Well, Mr. Underwood, we haven't done a systematic look at
the right of first refusal. We know it certainly is there. And as an opportunity
for federal workers who are affected by the A-76 process to accept employment
with the winning contractor when the contractor wins the competition.
Anecdotally I can say to you -- I guess, you know, I've heard
stories of communities where the affected workers got equal, if not better. I've
also heard stories in other communities where they're -- perhaps workers may end
up getting less benefits. But nothing overall that would say what the overall
trend is.
I do know in one situation that's currently underway with
the Army's logistics modernization effort, that effort offered employees a
pretty good package, self-landing, to accept employment with the winning
contractor. And I think the verdict is still out as to how many of those
employees will, in fact, take that offer.
One of the things you run
into at this day and time with the aging of the workforce, you have so many
workers within five or six years of being eligible for retirement. And while
they may have a good safety net or package to go to with that winning
contractor, not quite willing yet to forego obtaining the retirement benefits
they could get under civil service. So that's an issue that's out there that
looms, that affects a lot of people.
But overall, I can't say we
have detailed information on acceptance or rejection of the right of first
refusal.
UNDERWOOD: Well, I think that certainly suggests itself for
potential study and certainly a more systematic inquiry.
What about
the issue of having additional incentives or protections? Are there any other
ideas that have been generated?
BROSTEK: We haven't really done any
investigation of what, in addition, is currently available, might be needed.
UNDERWOOD: On the issue of core competencies has been raised on
trying to identify that core workforce. And the term "inherently governmental"
is used to describe which employees or which kinds of activities you're going to
keep on civil service activities -- with civil service employees.
Has, in your experience, the term "inherently governmental" been
applied or understood evenly? Or has there been efforts to kind of make the
definition elastic or contract whenever someone thinks that it's convenient to
do so?
CIPOLLA: Sir, I believe that's, likely, a rhetorical
question.
UNDERWOOD: No, I'm interested in -- well, I'm not
interested in a rhetorical answer. Maybe you can just give me some facts so that
I can ask another rhetorical question.
CIPOLLA: Our experience from
talking with people in agencies, not only in DOD but across government, is that
it is difficult to reach a consistent view of what is inherently governmental as
well as have people articulate a consistent process. And I can't add anything to
that. That basically is the ...
UNDERWOOD: So then it's not
inherent.
(LAUGHTER)
HOLMAN: Mr. Underwood, I think the work
that we've done the A-76 issue indicates to us that that's very much a
subjective term. It does vary across agencies.
I think -- in fact,
we're doing some work now, looking at the DOD's application of their DRID-20
(ph) process as well as the Fair Act (ph).
And I think it's safe to
say, you do some inconsistencies between the services. I think it's going to be
an evolutionary process as greater attention is given to looking at individual
functions and trying to determine if they do involve work that should be done
in- house or potentially subject to competition or contracting out. But there is
very much an element of subjectivity involved.
UNDERWOOD: Well,
thank you for those comments. And obviously, for it to be an evolutionary
process means that a lot of people get knit in that process of evolution.
More importantly, as I pointed out to you, Mr. Chairman, ordinance
activities are not even seen as inherently governmental in the contracting out
on this particular A-76 study and it's not even seen as an issue of readiness.
And this is a great source of disappointment to me and is in point of contention
in the implementation of this particular A-76 issue that I'm referring to.
And I certainly would ask, you know, other members of the committee
to help me sort this out.
Thank you.
BATEMAN: Thank you,
Mr. Underwood.
Mr. Ortiz has a question.
ORTIZ: This
goes back to when you were talking about the necessity of having some type of
balance, you know, the contract workers versus the civilian force.
And let me tell you an experience I had last week or even before
that.
As you well know, some of the Apaches were grounded --
couldn't fly. They needed to be refurbished.
And that's very key to
our readiness, Mr. Chairman.
They went to a private company and they
told them we need to work on 700 Apache helicopters. Their answer was: We can
get started in May of this year and maybe finished by late 2001.
Well, they went to the civil service workers, they're finished with
the work before the other company could get started. So we do -- at least I do
believe very strongly that there has to be a balance.
The general
went down there and says -- when he came to me, I am supposed to supply these
helicopters when we go to war. And we were not in any position to do so. And he
went down just to thank them because the companies, without having to name a
name, couldn't do it. But the civil service workers could do it a year before
the other company could get started.
So I think that the balance,
Mr. Chairman, is very, very important.
I just wanted to make this
point and maybe you can add something to it or maybe you had some experiences
such as this.
CIPOLLA: I can't -- it's an excellent point and there
are as many anecdotes of that sort on one side of the issue as there are on the
other side, which points up the need for the validity of the process, and even
more importantly, for having an objective that tries to achieve as much balance
as possible.
BATEMAN: All right. Anything further, Mr. Cummings or
Mr. Ortiz?
Well, gentlemen, we thank you very much for appearing
before us today and giving us the benefit of your thinking on these matters and
we are in your debt.
And with that, we will excuse the first panel
and ask the second panel if they would come up and be seated.
Our
second panel this afternoon consists of the following witnesses: Dr. Diane M.
Disney, deputy assistant secretary of defense for civilian personnel policy; Mr.
David L. Snyder, deputy assistant secretary of the army for civilian personnel
policy; Ms. Betty S. Welch, deputy assistant secretary of the Navy for civilian
personnel; Ms. Mary Lou Keener, deputy assistant secretary of the Air Force for
force management and personnel; and Mr. David O. Cooke, director of
administration and management, office of the secretary of defense.
Dr. Disney, we have your full statement and it will be made part of
the record and now you may proceed as you choose.
DISNEY: Thank you,
sir.
Mr. Chairman, members of the subcommittees, I'm very pleased to
be here to today to discuss the matters affecting the civilian workforce with
the Department of Defense.
Over ten consecutive years of downsizing
have brought significant changes in DOD's workforce, as has already been pointed
out. As fiscal year 1989 ended, DOD employed about 1.15 million people. A decade
later, the number had declined to 732,000, a drop of over 36 percent. Plans call
for another 11 percent drop from that number by the end of fiscal year 2005. But
what does all of this mean?
First, there's been a four-year increase
in the average age. Further, the number of employees younger than 31 has dropped
by 76 percent. A third of the current workers are 51 or older as accessions have
fallen from 65,000 a year to about 20,000. This poses problems in the transfer
of institutional knowledge.
Second, we're seeing increasing levels
of professionalization. While there's been a decline in all major areas, the
sharpest drops have been in clerical and blue-collar jobs. The share in
professional, technical and administrative jobs has risen.
Third,
today's workforce is more highly educated than in the past and that's because
today's jobs require more education and training than did earlier ones.
Accompanying these changes has been an increase in typical grade level and in
average costs. We clearly have a workforce that's very different from that of a
decade ago.
We've worked hard to minimize the trauma associated with
the drawdown. Indeed, we've held layoffs to less than 9 percent of total
separations. Foremost among our internal efforts has been our priority placement
program. Tied closely to that have been the voluntary early retirement authority
and the voluntary separation incentive payment, better known as the buyout.
We are very grateful for your support with both of these and in
related areas as well.
We also owe credit for workforce stability to
our labor management partnerships, which have improved relationships, increased
productivity and reduced costs.
Unfortunate byproducts of the drawdown
include the declining rate of promotions and certain areas of skills imbalance.
Another challenge has been to develop leaders for a world of broader
responsibilities, more complex missions and fewer resources. That's why we
created the award-winning defense leadership and management program. This
systematic investment in potential civilian leaders will show dividends far into
the future.
Despite the pressures of change, defense civilians have
continued to dedicate themselves fully to the department's mission. Outside
pressures, though, are taking their toll. Because of the robust American
economy, the civil service simply cannot match some private sector starting
salaries.
But we use the workforce shaping tools I mentioned
earlier. We ask for your continuing assistance as we enter this serious right-
sizing phase.
First, we're continuing to develop tools for force
shaping. These would provide the flexibility to meet critical mission needs and
correct skill imbalances. For example, some units have downsized and
reengineered to where they have the right number of employees, but might not
have the right mix of skills. We're looking to modifications of VERA (ph) and
VSIP (ph) in this regard. We're also seeking to extend the authority for
employees to participate voluntarily in reductions in force.
Another
request will be to restructure the restriction on degree training.
To permit us to be more competitive in the labor market, the
department is developing a proposal for an alternative hiring system.
You've also expressed interest in our personnel system
regionalization and systems modernization. We now have 22 regional personnel
centers. We have eliminated 10 non-interoperable data systems. Our new data
management system has been successfully deployed to sites in the Army, Navy and
the Air Force. After Milestone-3 (ph) approval later this month, full deployment
begins. And these efforts will save the department over $220 million a year.
That concludes my remarks. Thank you again for this opportunity to
discuss issues related to our valuable civilian workforce, and I'll be pleased
to answer your questions.
BATEMAN: Thank you very much, Dr. Disney.
Now we'd be happy to hear from Mr. Snyder, the deputy assistant
secretary of the Army for civilian personnel policy.
Mr. Snyder
SNYDER: Thank you, Mr. Chairman.
I also have more
detailed remarks and I'll just summarize it.
BATEMAN: Yes. All of the
witnesses' prepared statements will be made a part of the record.
SNYDER: Mr. Chairman and distinguished subcommittee members, thank
you for the opportunity to testify on Army civilian workforce issues, and also
for your commitment to policies and programs that maintain the high quality of
the federal service.
My statement will discuss Army's experience
with the civilian drawdown, strength projections and related issues.
During the 10-year period that ended 30 December 1999, the Army
reduced its total appropriated fund-strength by more than 42 percent. When only
military functions are included, our civilian strength declined by more than 44
percent during the above period. And we are programmed to reach an end-strength
of a little over 209,000 by 2005. This will be a 48 percent reduction from the
FY '89 level.
We have experienced similar demographic changes to
those of DOD as a whole, including a shift toward a greater proportion of the
workforce in professional occupations and higher educational levels.
The age and tenure of Army civilians has increased significantly
during the drawdown, and 30 percent of our professional administrative and
technical workforce will be eligible for optional retirement in 2003, 62 percent
in 2010.
To counter the losses we expect, it is critical that we
significantly increase our civilian recruitment and entry levels, particularly
in the professional, administrative and technical occupations.
The
Army has an intern program and that is one of the means and methods that we use
to access those who will become our future civilian leaders. We centrally fund
our intern program, but it has declined steadily over the years during the
drawdown. In 1989, we had a total of 3,800 civilian interns. We will have 950 in
fiscal year '01.
We anticipate greater difficulty in filling
journeyman level and leadership vacancies with high qualified and well-trained
employees. Given the tight labor market, recruitment competition among employers
is intense, and the Army, as well as other federal agencies, are at a
competitive disadvantage because of certain requirements and restrictions of the
federal personnel system. And we are participating with the OSD and the other
components in a development of the DOD alternative system that Dr. Disney
referred to.
We also have been participating in regionalization and
it has been a challenge. We have aggressively addressed the needs of our
customers and we will continue to do so, but it has not been easy.
Now one final thing on the Army civilian workforce: It has been and
will continue to be a major contributor to military readiness, performing a wide
range of future functions essential to the Army's mission. Over 43,000 civilians
of the Army are forward-stationed around the globe. Army civilians have afforded
direct support to operations -- direct support to operations such as Desert
Storm, Haiti and those in the Balkans. And because of this dedication of our
Army civilians to this important work, I'm especially pleased to have the
opportunity to present the Army views on matters affecting our civilian
workforce.
This concludes my remarks. I will be pleased to answer
any questions.
BATEMAN: Thank you, Mr. Snyder.
And now
we'd be pleased to hear from Ms. Welch, the deputy assistant secretary of the
Navy for civilian personnel.
Ms. Welch.
WELCH: Thank
you, Mr. Chairman, and members of the subcommittees. I am also pleased to be
here to provide testimony about the civilian workforce of the Department of the
Navy.
This afternoon, I will talk to you about the impact of 10
years worth of civilian workforce downsizing, where we are now, and some of our
plans for the future.
Today, as a result of downsizing and reduced
hiring, our civilian workforce is 44 percent smaller than it was 10 years ago.
We achieved this reduction and minimized the impact on our civilian workforce by
using all of the tools available to us, including the DOD priority placement
program, out-placement services and the separation incentive pay authorized by
Congress in 1993.
Before the incentive pay, 56 percent of our
separations were involuntary. With incentive pay, that number dropped to 17
percent.
Downsizing left us with a more senior workforce. Ten years
ago, only 16 percent of our workforce was eligible for retirement. Today, that
figure is closer to 34 percent. The situation is even more troubling when you
realize that 47 percent of our engineers, 55 percent of our scientists and 64
percent of our contract specialists will be eligible for retirement in the next
five years.
The average age of our non-supervisory, blue-collar
employees is 47. In the next five years, 53 percent of them will be eligible for
retirement. This means we have an older workforce, closer to retirement, without
an adequate number of replacements in the pipeline.
To prepare for
the future and to ensure we have a diverse and highly skilled civilian
workforce, we recognize the need for attracting, retaining and developing
employees ready to meet the Navy's mission.
For the professional and
administrative workforce, we are supporting our commands in establishing and
coordinating a recruiting effort to attract high-qualified individuals.
On the blue-collar side, the Department of the Navy has a long and
illustrious history of hiring and training the best deck-plate workforce in the
world.
During the past 10 years, as we have closed several of our
shipyards and aviation depots, our apprentice programs slowed to a trickle.
WELCH: Today, our systems commanders and the Atlantic and
Pacific fleet commanders who are responsible for the department's depot level
workforce consider the apprentice program a vital part of their efforts to
prepare for the workforce of tomorrow. Thanks to the additional funding received
in FY '99 and FY '00, our apprentice programs are now being revived.
The well-being and development of our current workforce is also an
important part of our future. Our focus is in three areas: workforce
development, quality of work life and workplace dispute resolution.
First, we are committed to our workforce through programs such as
the DOD leadership and management program, the Department of the Navy civilian
leadership development program and continuous learning initiatives for our
employees.
Secondly, we are continuing to encourage our commands and
activities to use flexible work arrangements such as job sharing, part-time
employment, alternative work schedules and satellite work locations suitable to
the local needs.
And finally, we are focusing on workplace dispute
resolution, an issue of extreme importance to our employees and managers. In
1997, we launched a reengineering project to look at our Equal Employment
Opportunity Program. The number one problem cited by both managers and employees
was a costly, lengthy, divisive process used to resolve EEO complaints. With
that in mind, we put together a pilot EEO complaint process that deals with
these issues and provides a less contentious forum for resolving workplace
disputes. We are extremely pleased with the results today. Our employees at the
pilot sites are choosing to take a more active role in early resolution of their
disputes. More of the complaints are being resolved informally and the
processing time and costs have been significantly decreased.
Based
on our positive experience, we are expanding the pilots to several more
activities this year.
This concludes my remarks. Thank you for the
opportunity to address you and I'd be pleased to answer any questions you may
have for me.
BATEMAN: Thank you, Ms. Welch.
I neglected
to mention that a part of your title is secretary of the Navy for civilian
personnel and equal employment opportunity. So I can understand why you
highlighted that.
Now,we will hear from Ms. Mary Lou Keener, deputy
assistant secretary of the Air Force for force management and personnel.
Ms. Keener.
KEENER: Mr. Chairman and members of the
subcommittees, I am pleased to join Dr. Disney and other panel members in
testifying on these very important issues.
It is a privilege to
represent the Air Force civilian workforce, whose daily contributions ensure the
readiness of our force.
The Air Force cannot rely on just one
element of our force for readiness. It takes all of our people -- military,
civilian, guard and reserve, their integrated contributions and the synergy and
flexibility they create -- to ensure that we are the preeminent expeditionary
aerospace force in the world.
We appreciate the support that the
Congress has provided to address military recruiting and retention issues. Our
challenges in the civilian workforce are no less serious.
My written
testimony addresses these challenges in more detail, but I would like to spend
the majority of my time this afternoon and focus my comments on how we in the
Air Force plan to address these challenges.
I'd like to tell you
that we do have a plan to meet these challenges. We have a civilian
workforce-shaping plan that we feel is specifically geared to satisfy our future
Air Force mission requirements. And with your help, we are prepared to begin to
execute this plan.
In my written testimony on page five, there is a
colored bar graph, and this graph depicts for you, where we anticipate that our
civilian workforce needs to be by the year 2005. That graph also outlines for
you the three major elements of our workforce-shaping plan that will, we feel,
assist us to reach our objectives. That plan consists of three major elements.
Those major elements, as you can see, are first of all, force renewal, force
skills, development skills, accuracy and separation management.
In
the area of accession planning, force renewal is a priority for us and it is
particularly critical in the depots. The depot maintenance community has
experienced a decade-long hiring restriction freeze and BRAC actions that have
resulted in a severely imbalanced -- a severe imbalance in skills and levels of
experience.
In the next few years, we will lose more employees,
particularly in the blue-collar occupations, due to years of service and we need
to undertake aggressive hiring efforts.
In the area of force
development, the Air Force will invest in training and retraining our current
employees to keep them up to date in this rapidly changing environment. But we
also need the ability to achieve that third prong of our plan, which is, to
stimulate and manage separations in our workforce.
The voluntary
early retirement and voluntary separation incentive programs that you provided
us with -- and for which we are very grateful -- have been very valuable tools
to rapidly draw down the force. But we need the ability to offer targeted
voluntary incentives that are not tied to reduction in force and can be used
with more precision in shaping the workforce that is needed to meet our mission
requirements.
In closing, the Air Force believes that it takes all
elements of our total force working together in a seamless manner to sustain
readiness. With your help and the tools necessary to execute our
workforce-shaping plan, we will sustain the best force mix and the best talent
to do our job.
We appreciate the opportunity to address these
critical issues regarding the civilian component of our force, and I will be
happy to answer any questions of the panel.
BATEMAN: Thank you, Ms.
Keener.
Now we'll be pleased to hear from Mr. David O. Cooke, who is
the director of administration and management for the office of the secretary of
defense.
Mr. Cooke.
COOKE: Thank you, Mr. Chairman.
I am here representing what we call "the fourth estate." Perhaps I'd
better define that. The fourth estate is the Department of Defense which is not
in the departments of Army, Navy and Air Force. You know, it's really ...
BATEMAN: Mr. Cooke, if you would, pull that microphone a little
closer to you.
COOKE: I will, indeed.
The fourth estate
is composed of defense agencies, defense field activities and several other
defense organizations. Not as alike as peas in the pod. Some of these defense
agencies or field activities are very small; Some of them represent substantial
size -- the defense logistics agency, for example, or the defense finance and
accounting agency.
The problems in the fourth estate, though, are
essentially those described by my colleagues, Dr. Disney and so forth. We
appreciate the opportunity to be heard on these problems. I can only observe
that the fourth estate, as a group, is overwhelmingly civilian, more so than the
military departments. It's more heavily white-collar and it's more heavily
female in composition.
Now, there is a tendency to think that all
members of the fourth estate are alike, and that's simply not true in terms of
organizational mission, reporting assignments and so forth. For example, there
is some, I think, misconception that Washington headquarter service is just OSD
by another name. But the Washington headquarter service is an operating
function. It supports, for example, all administrative space, GSA space in the
national capital region. I have a small outfit in the Washington headquarter
service which is responsible for absentee voting worldwide. We're doing some
very interesting things, by the way, in seeing whether we can eventually have
voting by the Internet.
Despite its growth -- the fourth estate has
grown over the years largely by taking functions which were fragmented among the
military departments and pulling them together into a defense agency or defense
field activity. But nonetheless, we have maintained our share of reductions
along with the military departments. OSD itself, for example, has come down by
33 percent. So there are significant reductions.
We certainly need
the things that Dr. Disney talked about to shape the workforce. We support them.
And I, of course, am available to answer any questions you may have.
Thank you.
BATEMAN: Thank you, Mr. Cooke. And I thank
all of the witnesses for being here with us today and providing us with their
testimony.
I'm intrigued as to some of the statistics. I don't
remember them all. I didn't write them all down. But we have a DOD-wide
percentage reduction in civilian personnel. We have different percentages for
each of the services. Could you review for me what the percentage reduction has
been since, say, 1989, or whatever date is more convenient, so that we have an
idea as to the relative size of the downsizing in each of your agencies?
DISNEY: For the department as a whole, the reduction has been from
1.15 million to roughly 732,000, which is roughly 36 percent.
BATEMAN: And for the Army, that figure is...
SNYDER: Mr.
Chairman, the Army has gone from 406,000 civilians at the end of September 1989
to approximately, today, about 220,000. That's roughly 42 percent.
BATEMAN: And Ms. Welch, the Navy?
WELCH: The Navy, sir,
in September of 1989, we were at about 130,000; December of '99, 184,700, for
about 44 percent smaller.
BATEMAN: And let's see -- Mr. Cooke, in
your fourth estate?
COOKE: I'd like to supply for the record, you
don't want -- oh, 14 defense agencies and seven ...
BATEMAN: Yes,
yes. And you don't have a ...
COOKE: But overall, there is a
substantial reduction, but that number would be sort of meaningless because some
of our larger agencies have taken much larger percentages than some of the
smaller ones and so forth.
DISNEY: Mr. Chairman ...
BATEMAN: Yes, certainly.
DISNEY: ... if I could, I would
like to take this question for the record because even though we know the
numbers, there are differences in whether everyone is talking about military and
civil functions. So in order to make certain that we're giving you consistent
numbers, I would like to be able to provide the data for you.
BATEMAN: That would be very helpful, if you would, Dr. Disney.
DISNEY: I'll do that.
BATEMAN: Oh, Ms. Keener, I didn't
give you a chance to answer, excuse me.
KEENER: Mr. Chairman, in
fiscal year '89, the Air Force stood at 260,000 members. At the end of fiscal
year '99, we were at 165,000 for a decrease of about 37 percent.
BATEMAN: OK. There are further reductions in the civilian personnel
force contemplated. What is that number?
DISNEY: Yes, sir. Another
11 percent from the fiscal '99 levels between now and the end of 2005.
BATEMAN: Who determined that that number should be 11 percent as
opposed to 15 percent or 5 percent?
DISNEY: That's part of our
normal budgeting process, sir.
BATEMAN: But it is a figure ...
DISNEY: A department-wide effort, yes.
BATEMAN: ...
developed by the Department of Defense, not something that we in the Congress
said you shall reduce by that number.
DISNEY: Well, there are some
instances where the Congress indicates that we should take cuts of a certain
magnitude, either number or percentage, as in headquarters and as in the
acquisition core.
BATEMAN: My colleague, Mr. Hunter, is very prone
to be very outspoken on those two categories of personnel. Do you have any
observations you'd like to make on that subject?
DISNEY: On Mr.
Hunter or on reductions?
(LAUGHTER)
BATEMAN: I'm sure we
would all praise Mr. Hunter, but on the question of reductions and whether they
are manageable.
DISNEY: Yes, sir. The department would find it much
easier to manage if there were not constraints on specific percentages and
specific areas. That would make it perhaps easier to manage to meet the full
competency needs for readiness as we've indicated earlier.
BATEMAN:
You've spoken in terms of the number of people and the dramatic increase in the
number of people eligible for retirement. Do you contemplate need for incentives
for people not to retire?
DISNEY: No, sir. We already have retention
options that are available to us.
BATEMAN: So you have some tools
to...
DISNEY: Yes, sir.
BATEMAN: ... to encourage
selected skills that are in short supply to remain in the workforce even though
they're eligible for retirement.
DISNEY: Yes, and we find that a
great many people who are retirement eligible do not, in fact, retire.
BATEMAN: I've done that for a while, myself.
DISNEY: And
we have an example right here at the table.
BATEMAN: OK.
Mr. Mica.
MICA: Thank you.
I'm wondering if
you have looked at ways to create incentives to stay. Since it costs so much to
train new people, since people are living longer and working longer, is there
anything that you've recommended in your legislative package or personnel
changes and procedures as incentives to stay?
DISNEY: No, sir.
KEENER: I would add, Mr. Mica, that in the Air Force, we have
recently executed a 10 percent across-the-board retention bonus for our Reserve
pilots. So that's one initiative that we've just executed.
MICA:
Well, it seems like, you know, in an area that's highly technical, if you can
get these folks to stay on and encourage them, they're going to probably retire
-- get some retirement benefits and go do the same thing somewhere else, which
doesn't make a whole lot of sense.
DISNEY: Well, sir, we do have the
retention allowances, and we're making every effort to make certain that
managers across the department are more aware of these so that they can, in
fact, be used in areas of skills need.
MICA: Well, that's, you know,
an incentive program. How about -- has anyone broached the possibility of, like,
adding a month on every year in the future towards retirement, we keep them
around a little bit longer? What is it to retire, now? Like, you know, 20 --
well, I guess you can retire just about any time.
DISNEY: You can
take early retirement after 25 years of work at any age, but there is, of
course, a reduction in the amount that you would get.
MICA: Well, what
about 25 years and a month -- and add a month every year and...
DISNEY: That's a very interesting concept.
MICA: ...
like we're doing with Social Security. Has anybody proposed any changes in what
we've had? I mean, these ...
DISNEY: Yes, sir. There is one option
that has been proposed -- that has been discussed within the department, and
that is one that we call phased retirement. That stems from the belief that
people are reluctant to retire sometimes, for reasons of -- for fear of loss of
income of fear of loss of sanity. And we've tried to devise a way to address
both of those concerns, which would allow an individual to go from full
employment to 75 percent time, but be able to draw perhaps on some of the
retirement income so that the income loss would not be a problem.
The second year, it would be a 50/50 arrangement and then the person
would leave. That would provide a rational way of an individual moving out, but
also bringing somebody in and having an orderly transfer of institutional
knowledge. Now that is just one idea that has been discussed.
MICA:
It sounds like you've got a heap of people that are getting ready or will be
eligible to retire, and some in some very strategic, high-cost, difficult to
replace or train or acquire.
In a job market that's becoming
increasingly tight and smaller numbers, I think we ought to be looking at
something where we could retain, have some incentives.
You know, I
love to have these people greet me at Wal-Mart, but I think that their talents
could be better utilized in some of these positions.
I'm surprised
that the military and civilian employment really hasn't looked at more
incentives to retain good folks and reward them for staying, or revise a
schedule that was set up.
Now, you know, Mr. Bateman's going to be
around, live a long, long time past his retirement. Hopefully...
BATEMAN: I think the sanity might be a problem.
(LAUGHTER)
MICA: But he'll be looking for something to
do.
Of course, we have our own retirement plan, but that's put in
effect by voters, too. It's a little bit different situation.
But
seriously, it seems to me that we're sort of missing the (inaudible) and that a
lot of the civilian people are realizing this, that people work longer, they can
contribute longer, and we shouldn't push them out and then bring in someone at a
higher cost. So they have a longer productivity and make some incentives
available.
DISNEY: Yes, sir, this is an issue. I agree with you more
and more on every passing year. And...
MICA: Particularly at your
age, you should.
(LAUGHTER)
DISNEY: Bless your heart.
We'd be more than delighted to work with you and your staff on
exploring options...
MICA: You have in the past and I appreciate
that. Thank you.
Thank you, Mr. Chairman.
BATEMAN: Mr.
Ortiz.
ORTIZ: Thank you.
For Ms. Welch, I have a
question: How important was it for the Navy apprenticeship program funding to be
outside the working capital fund earmarked -- in other words, what would happen
if the funding were to be rescinded?
WELCH: First, I think we need
to thank you for giving us those funds. And it would be very important to us to
continue to have those funds outside of the working capital fund. As you know,
that was part of the reason for the degradation in the apprenticeship program to
start with. And so the continued budget support is most appreciated and is being
used very, very well.
ORTIZ: Very good.
And then, for
Mr. Snyder: What tools does the Army have in place to ensure that it retains, if
necessary, technical skills in its industrial facility when across-the-board
reductions are ordered?
And this is because of prior experiences
that we've had. At the Army depot, you know what they did? We said we must
downsize. We downsized, but we never took it into consideration who was going to
be relieved of their duties, who was going to be out. And then we find ourselves
-- that some of the technical skills that we had were gone. So do we have
something in place that will help us maintain those skills?
SNYDER:
That's a two-part answer, Mr. Ortiz. And the first part is, when activities
downsize, they take a look organizationally, and as a general rule, they do not
take out of the workforce, skills that they need. That's one of the fundamentals
of the way that we run reductions within the -- not within the Department of the
Army but within federal government as a whole.
Now on the other
side, where we come around in terms of accessions, we have what I call a -- and
I refer to it in my statement -- an intern program, which is for the Army career
programs, engineers and scientists, and it's basically a white-collar program.
It's basically a white-collar program that while we have those people in that
program, they are insulated from reduction in force. In other words, they will
not be touched by a reduction in force.
We are now working with the
Army materiel command to try to size -- and we're working on the requirement to
try to get to an appropriate size, what an apprentice program should be because
we just recently heard form General Coburn that says that this is one of his
largest needs.
And so we're trying to get the right size on that
requirement even today. And we expect to have it finished some time in the
spring.
ORTIZ: Thank you.
Thank you, Mr. Chairman.
BATEMAN: Mr. Ortiz.
Let me ask if I might, if each of
you could address whether or not, in the phraseology of Mr. Brostek, the
Department of Defense as a whole and the military components are in the course
of or have developed a workforce plan. Do you all of you have one? Or are you in
the process of developing one in the context of the testimony of Mr. Cipolla and
Mr. Brostek?
DISNEY: Yes, sir. The Department of Defense,
historically, has not approached the planning for the civilian sector as it has
for the military because there are inherent differences between the two. The
military has age restrictions, it has an up-or-out system, it has a mix of
floors and ceilings and other kinds of things that make the planning there much
more rigid.
The civilian sector, though, has no mandatory retirement
age and rather than up or out, it's much more an up-and-stay kind of model.
For the past six years, we have been paying a great deal of
attention as the department and as individual components to workforce planning.
For example, every three months -- three to four months, we bring all of the
components in the functional areas together to assess where we were on a great
range of demographic characteristics -- successions, eligibility for retirement,
and so forth -- in 1989 and where we are now. We looked at the difference.
We have built a micro-simulation model that permits us to make
projections of where we will be five years or so into the future. So we look at
where we're likely to be if there are no changes in policies or programs. If
we're not satisfied that we're headed in the right direction, we use those
forums to develop legislative proposals or internal programs to change the way
we operate. It is that process that has enabled us to come forward with our
legislative proposals.
Beyond that -- well, data analysis -- let me
talk a little bit more about that.
We have commissioned some very
special studies to help us in this regard. In one case, RAND Corporation is
working with us and the joint staff on a study called "Future Worker/Future
Warrior" where we look at all the military and civilian positions we have now
and compare them to all other positions. We had a cadre of occupational analysts
from a number of areas look at them across five different dimensions as to how
likely they were to change in the future and where our need was to be.
What we wanted to do was to determine the mix of competencies
necessary in 2010 so that we could begin changing our programs and influencing
high schools and colleges to change theirs to enable us to yield the right mix
from which we could select in the future.
In addition, we have done
any number of studies related to the impact of A-76 and other kinds of things.
So we've built a body of research that enables us to meet the first important
prong of workforce planning, which is the database.
The second thing
we've done on a department-wide basis is increase our investment in education
and training. We mentioned the DLAMP (ph) program. We have also been working
with the acquisition, technology and logistics community to identify the key
two-dozen competencies to be needed in the future so we can restructure the
defense acquisition university to yield what we will want in the future.
We have been doing a similar thing with the intelligence community.
So there are more examples, but those will suffice for now.
And the third is to develop a managed approach to accessions and
separations. So when we put the three of them together and say we have a plan, a
strategy for the department as a whole, and then this cascades down to specific
plans with somewhat varying details in each of the components.
BATEMAN: In light of Dr. Disney's very meaningful statement, does
any other witness have anything they'd like to add?
Mr. Snyder.
SNYDER: Yes, Mr. Chairman.
The Army has a system that is
known as total army analysis -- and I'm sure Mr. Hawley (ph) has probably been
associated with that in the past -- but the term, total army analysis, up until
a couple -- or up until last year, was not total because it did not include the
civilian part of the workforce.
And so what we have done in the Army
-- what we did in the Army last year, was we started the process to include the
whole civilian workforce in total army analysis. And the TAA process goes out
into the out years to I think it's to about 2010, if not a little bit sooner.
But what we have done with that is, we use a very sophisticated projection model
on the civilian workforce side, which, as Dr. Disney says, will do a very good
and accurate job of projecting where we will be, absent any policy changes.
We then take our functional chiefs and our career program managers
to take a look at the 80,000-or-so high level civilians we have, to take a look
at their career fields and add into that what they know and believe will come as
a result of technology changes and whatever. At the end of that, we end up with
a much more precise slice of what we believe the civilian workforce will look
like. Is it 100 percent accurate right now? No, but it's a lot better than what
we used to use.
BATEMAN: Thank you, Mr. Snyder.
Anyone
else have...
KEENER: Yes, sir. I would just like to add that I did
briefly describe our plan in my opening statement, but I wanted to add, that
last month, in February, we executed a civilian workforce-shaping summit here in
Washington. We brought stakeholders in from all over the country and encouraged
them to think out of the box. That's why I was interested in Mr. Mica's comments
earlier, because these people were encouraged to think about the kinds of things
that you were talking about that might aid us in our workforce shaping.
Also I'd like to mention that the Air Force materiel command is our
largest employer of civilians, and they have been engaged in an in-depth study
over the last year to try to come up with a plan to right-size the civilian
force at AFMC and specifically looking at the depot force in that command.
BATEMAN: Thank you very much.
Anyone else?
Yes, Ms. Welch.
WELCH: The Navy, as you probably well
know, is much more decentralized than our fellow components here. Over the last
two years, we have been working with our highest-ranking civilian executives
looking at how to shape our workforce for the future because it is a major
concern to us.
BATEMAN: Thank you.
Mr. Cooke.
Well, we apparently -- are we in recess or we have votes?
(CROSSTALK)
Mr. Cummings, we'll call on you as we
clarify whether or not this is a recess of the House or whether it's votes.
CUMMINGS: Very well. Thank you very much, Mr. Chairman.
What are we doing with regard to -- what do you do with regard to
colleges? I mean, just a little earlier we talked about training and somebody --
the panel before you all talked about how so often when the budget is cut, a lot
of times training dollars go out, you know, are reduced. And I just believe in
training, because I think any time you can give people an opportunity to become
better and to make more money at what they're already doing in the field that
they're already in, I think, is really good.
So I was wondering,
number one, what -- I mean, do you all find that to be the case? What kind of
training opportunities are there available as you try to restructure and make
the workforce consistent with your needs?
DISNEY: We're making a
very concerted effort within the Department of Defense to dedicate more dollars
to education and training, but also to use the dollars that we have more
effectively. And that cuts across every level of education and training.
CUMMINGS: So do you use colleges? I mean, in other words ...
DISNEY: We have, in our defense leadership and management program, we're
offering courses that we do in conjunction with institutions of higher
education. We also are proposing some legislation this year that would eliminate
the restriction against paying for degrees. That is a barrier to us in some
areas, because while it is perfectly legal for us to pay for individual courses
and have those courses perhaps lead to a degree, that's not necessarily the same
thing as enrolling someone in a degree program for a definite purpose. We'd like
the flexibility to do the latter because that's better career management.
CUMMINGS: And legislation, would it have -- I mean, what kind of
teeth does it have, if any, to make sure that the person, once they get the
degree, you know, sticks in that job that we are preparing them to do? I mean,
is it a certain period of time?
DISNEY: There is a requirement for
staying three times the length of the education or training, yes, sir.
CUMMINGS: So where is that now?
DISNEY: That is in our
legislative package, working its way through the process.
COOKE: Let
me tell you a program we ran in OSD that does very well. We have authority, as
we all do, to bring in interns for the summer -- college or whatnot. We decided
to bring in faculty members from the historic black colleges and universities
for two reasons. One, they'd be a little more mature and we might get some
better contributions from them in the summer; two, they would go back to their
campuses and they'd talk up OSD and WHS of being not bad places to work, and
it's done reasonably well over the years.
CUMMINGS: Very good...
(CROSSTALK)
BATEMAN: Mr. Cummings, I suspect the
committee ought to recess now in order to go and vote, but we will return if the
witnesses will be patient with us, as soon as we can take care of two votes.
(RECESS)
BATEMAN: And I'll recognize Mr. Underwood for
any question he may have.
UNDERWOOD: Thank you, thank you very much,
Mr. Chairman.
UNDERWOOD: And thank you for your testimony. I
read briefly through some of it and I had a conversation with you just now, Dr.
Disney.
And perhaps just for the record, I asked a question with the
earlier panel about some thinking about how to better provide assistance to
workers who were undergoing a dramatic work transition through no fault of their
own and what are some of the ideas behind that. Any kind of new innovative
ideas, other than the current existing system? And what about the issue of how
we deal with the term "inherently governmental," which is kind of a -- certainly
a sore spot because it varies from agency to agency, I'm sure, but particularly
with regards to the Department of Defense.
DISNEY: Yes, sir.
"Inherently governmental" is a term that can vary -- the definition of which can
vary from agency to agency. As we were talking, what is inherently governmental
in the Department of Agriculture may well not be in the Department of Defense.
And I think there are, working, about as many definitions of that as there are
agencies at this particular moment. But we're going through a process within DOD
to try to make certain that there is unanimity within the department as to what
this means.
Also within the department, we've been very concerned
about trying to manage the downsizing humanely, not just efficiently. And that's
why we have continued to invest in our priority placement program, which is the
model placement program, I think, in the country.
This enables
someone who is about to lose his or her job for no personal fault at all to find
new employment within the department. The individual registers, perhaps as long
as two years in advance of a reduction in force, and is retained on the roster
as long as a year after that in order to provide an opportunity for there to
turn up a position for which the person is well qualified, individual registers
in areas of competence and if they're -- and in geographic areas of preference.
And if there is a position that comes up, that person has that job
unless it can be demonstrated that he or she is not qualified. This has served
us very well since its founding. It has found new jobs within the department for
161,000 people. Since our drawdown began, it has found new jobs for some 75,000
within DOD.
At the height of BRAC, it was finding them at the rate
of 1,000 a month. Now that rate has declined because we have fewer positions
into which to put people.
In the situation of Guam, we know that
over 200 people found new jobs within priority placement and others have
received new offers.
We also instituted a special program called the
expanded buyout program that enabled us to pay buyouts in other areas and then
relocate someone into that empty position. And an additional 40 have been able
to continue their employment through that.
So when we add the ones
who have received VSIP and VERA (ph), we see that about 500 of the individuals
who were facing dislocation through no fault of their own have either been --
have found a way into retirement more easily that what would otherwise have been
the case, or have retained their employment.
The others are still
registered, so there are options that are still available.
UNDERWOOD: On the issue of "inherently governmental," in our
discussion and certainly in this committee, we've heard it before, those
activities, which are directly related to war fighting and preparation for war
fighting.
And what strikes me as odd in the particular case of Guam
is that we have taken ordnance handling -- which I would assume almost anyone
would readily admit is preparation for war fighting -- has been contracted out,
has been subjected to outsourcing. It occurs to me that that's quite a stretch.
And also, you know, if the main motivation is saving money, and you
have a case like -- a community like Guam -- which is many, many thousands of
miles away -- when you reduce the inherent and the core capacity to respond to
military activities out there -- as has already been the case with lots of
people leaving -- the time in the future when there may be a bump up or a need
to raise the level of activity again, it's actually going to be far more costly
because people are going to have to be brought in.
And either -- if
it's done by the contractor, the contractor is going to put that into whatever
additional funding, any modification for their contract. Or if it's going to be
civil service, then obviously you have a case where you're going to have a lot
of people who are, quote, "state-side higher" (ph), and they're going to be
entitled to many, many more benefits.
And it just seems to me that
even though it's very difficult to make the case here because they're all civil
service employees, but in this particular instance, there was -- you have what
is a forward- deployed situation being dealt with as if it was another military
installation, you know, with a usual economic environment and usual numbers of
people that are available for various kinds of jobs.
But on some of
these jobs that are very, very specialized, the capacity is gone and they're now
thousands of miles somewhere else.
DISNEY: Sir, I'm afraid I'm not
totally familiar with all the details of the reasoning for the contracting
study. And for that, I would have to defer to Ms. Welch of the Navy, if she
would care to comment.
UNDERWOOD: Ms. Welch.
WELCH: I
can't comment any further either as to why that contracting out study was done.
But I would be happy to find out and get that information back to you if there's
anything further we can add.
BATEMAN: If you would supply that for
the committee's record for the hearing.
We are going to keep the
record of the hearing open in the even there are other members who have
questions and haven't had a chance to pose them or if staff might have some
questions that they feel like we would be benefited from.
Also for
the record, Dr. Disney, you were going to furnish us with the numbers on the
drawdown in the various departments and agencies within the Department of
Defense.
Would it be unduly burdensome to also give to us the number
of new contract employees, non-governmental employees, that are now on the
payroll, and the cost of those people?
DISNEY: Well, sir, there is
no requirement that that information be collected, so a consequence, there is no
database on the employees of the contractors. The database that we have on
contracts doesn't include it anywhere.
BATEMAN: So, you have no
basis ...
DISNEY: No, sir.
BATEMAN: ... to determine how
many people are now doing services for the United States government under
contract relative to the number of civil service employees who've gone away.
DISNEY: That is correct.
BATEMAN: OK.
Mr.
Chambliss.
CHAMBLISS: Thank you, Mr. Chairman.
Ms.
Keener, as you correctly note in your written testimony, there is an increased
-- we're in an increased era of contracting out and privatization. And as the
military, and in particular the Air Force, outsources new weapons systems, what
impact does that have on the workforce's ability to sustain the systems that are
assigned to the government? And what's being done to ensure that the government
retains the skills to ensure a ready and controlled maintenance capability?
KEENER: First, Mr. Chambliss, we are -- it is our intent to fully comply
with the 50/50 rule, the ratio. And right now, we are right at that level, so we
do not intend to ever go beyond the rule and contract out to a greater degree
more than 50 percent of that workforce, particularly in the depots, which I
think you're referring to.
On the issue -- the second part of your
question: What do we intend to do to guarantee that we have a good balance of
skills and be able to sustain the force. In my oral statement, I described the
strategic civilian workforce-shaping plan that the Air Force has developed. And
in that statement I describe the three-prong process that we intend to utilize
to do exactly what you have asked.
First of all, we're going to deal
with accession planning and that deals with force renewal, which will be
particularly important in the area of helping us to bring in new entry-level
employees in the blue-collar area.
The second aspect of our plan
deals with training and retraining, and that will help us to provide a better
balance of the skill mix that we have in our force.
And last, we
talked about the importance of separation management as a part of that plan and
that will assist us to expand our VERA-VSIP (ph) authority so that we will be
able to use that as a real management tool rather than just a reduction-in-force
tool and selectively be able to narrowly focus those individuals that we want to
offer buyouts to.
CHAMBLISS: The Air Force has previously testified
about difficulty in hiring skilled personnel during surge times. Can you talk a
little bit about what impediments they do face and what we're talking about
doing to overcome those impediments?
KEENER: In certain areas,
specifically in high tech areas, information technology, those particular areas
that we really need skilled people for, it is particularly difficult to find
those people and to bring them into the workforce. But we are doing everything
that we can to utilize initiatives in the area of force-renewal to be able to
attract these people to the Air Force. We recognize that there are severe
impediments out there. We're dealing with a very robust economy. But some of the
specific initiatives that are in both Dr. Disney's testimony and in my
testimony, we're targeting to help us to bring in a new entry level Force.
CHAMBLISS: Well, realizing that we're in a little bit different
economy than we were in in '91 and '92 when we were last required to really
surge, are we looking ahead to the potential impediments that may be there? And
do we feel confident, in the event of a near-term conflict, we're going to be
able to reach out and fill that surge- capacity problem?
KEENER:
Yes, sir, I think we do. And the plan, as I described it in my statement,
projects -- this plan is really based on what we perceive to be our mission
requirements in the year 2005. So this plan is not just a plan to try to bring
in people that we need. This is a real plan that is geared to what our mission
requirements will be and that will actually help us to achieve that state of
readiness that we know we need to be at.
CHAMBLISS: OK.
Dr. Disney, I have heard complaints over the last several years --
six years -- from quite a number of my constituents who work at Robbins Air
Force Base about the lack of increases in the wage-grade pay scale compared to
other areas of the state. Can you explain why a worker, say, an electrician at
Robbins Air Force Base, might be paid at a certain level, while a worker doing
the same job in Atlanta, which is less than 100 miles away, might be paid at a
higher rate? Or a worker doing the same job at another government agency in
Warner- Robbins would be paid at a higher rate?
And also, why have
the general schedule employees received pay increases equal to twice the amount
of the wage-grade people over the last 14 years?
DISNEY: Yes, sir.
The general schedule and the blue-collar workers find their wages set in
different ways. For the general schedule, the wages are set on a national level,
with the increases set nationally. And a portion of the national increase is set
aside for locality adjustments -- a very small portion of that.
But
what that means is that the core wage of a GS worker in Washington, D.C. is the
same as that in Macon, is the same as that in Portland, Oregon.
DISNEY: The federal wage system employees, on the other hand,
find their wages based upon
prevailing wages in the geographic
area in which they are located -- generally, the commuting area. These wage
areas are determined through the work of the federal prevailing rate advisory
committee, which is advisory to the office of personnel management. That
consists of both union representatives and civil service agency representatives.
The wage surveys are conducted by people in my organization in
conjunction with their labor counterparts, and that's where the information
comes from, from surveys of the area that get used to establish what those rates
are.
CHAMBLISS: Well, I understand that, but -- I mean, you've got
-- for example, in our depot, you've got specialized jobs that there aren't many
jobs like that in the area immediately surrounding the depot. But there are
those same jobs at Lockheed, for example, in Atlanta, which is, like I say, less
than 100 miles away and certainly within -- we got folks that commute every day
back and forth to Lockheed from Atlanta down to the depot.
And the
wage rate in the Atlanta area is not used at the depot. It's not in our
prevailing wage schedule. Why would that be the case when
there's nobody else in that category within the local area there?
DISNEY: Well, sir, I don't have all the details on that, but I would
be more than happy to find them out and to provide information for the record
for you.
CHAMBLISS: All right, if you would, please.
DISNEY: Yes, sir.
CHAMBLISS: Thank you, Mr. Chairman.
BATEMAN: Thank you, Mr. Chambliss.
Dr. Disney, I was
just handed the conference report on the National Defense Authorization Act for
fiscal year 2000, and I don't want you to bother with it today, but on page 60,
section 343, it says: Report on use of employees of non-federal entities to
provide services to the Department of Defense.
I think know the
answer, but the law calls on the secretary of defense to provide a report and
give information. It has some caveats in it to the extent practical. I think
your answer is going to be, it isn't practical. Get us a formal response to why
we don't have the report and why you can't, if that is the case, provide the
report.
DISNEY: Yes, sir, we'll do that.
BATEMAN: OK.
Well, I believe that is certainly more than enough time for you all
to have spent at the witness stand today or at the table. We do appreciate your
being here and your testimony. If you would be so kind, we may have further
questions that you can submit answers to for the record.
And we
adjourn with our thanks to the witnesses.
END
NOTES: Unknown - Indicates speaker unknown.
Inaudible - Could not make out what was being said.
off mike -
Indicates could not make out what was being said.
PERSON: HERBERT H BATEMAN (92%); SAXBY
CHAMBLISS (57%); JOE SCARBOROUGH (57%); WALTER B
JONES (56%); DUNCAN L HUNTER (56%); JAMES V
HANSEN (55%); CURT WELDON (55%); LEE
TERRY (54%); SOLOMON P ORTIZ (53%); DON
SHERWOOD (53%); NORMAN SISISKY (52%); CHRIS
JOHN (52%); ROD BLAGOJEVICH (51%); ADAM
SMITH (50%); JAMES H MALONEY (50%); MIKE
MCINTYRE (50%);
LOAD-DATE: March 16, 2000