Department Of Defense Civilian Human Resources Strategic Plan

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Department of DefenseCivilian Human ResourcesStrategic PlanOffice of the Under Secretary of Defense(Personnel and Readiness)

Form ApprovedOMB No. 0704-0188Report Documentation PagePublic reporting burden for the collection of information is estimated to average 1 hour per response, including the time for reviewing instructions, searching existing data sources, gathering andmaintaining the data needed, and completing and reviewing the collection of information. Send comments regarding this burden estimate or any other aspect of this collection of information,including suggestions for reducing this burden, to Washington Headquarters Services, Directorate for Information Operations and Reports, 1215 Jefferson Davis Highway, Suite 1204, ArlingtonVA 22202-4302. Respondents should be aware that notwithstanding any other provision of law, no person shall be subject to a penalty for failing to comply with a collection of information if itdoes not display a currently valid OMB control number.1. REPORT DATE3. DATES COVERED2. REPORT TYPEAPR 200500-00-2005 to 00-00-20054. TITLE AND SUBTITLE5a. CONTRACT NUMBERDepartment of Defense Civilian Human Resources Strategic Plan5b. GRANT NUMBER5c. PROGRAM ELEMENT NUMBER6. AUTHOR(S)5d. PROJECT NUMBER5e. TASK NUMBER5f. WORK UNIT NUMBER7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES)Department of Defense,Office of the Under Secretary of Defense,Personnel and Readiness,Washington,DC9. SPONSORING/MONITORING AGENCY NAME(S) AND ADDRESS(ES)8. PERFORMING ORGANIZATIONREPORT NUMBER10. SPONSOR/MONITOR’S ACRONYM(S)11. SPONSOR/MONITOR’S REPORTNUMBER(S)12. DISTRIBUTION/AVAILABILITY STATEMENTApproved for public release; distribution unlimited13. SUPPLEMENTARY NOTES14. ABSTRACT15. SUBJECT TERMS16. SECURITY CLASSIFICATION OF:a. REPORTb. ABSTRACTc. THIS PAGEunclassifiedunclassifiedunclassified17. LIMITATION OFABSTRACT18. NUMBEROF PAGESSame asReport (SAR)4919a. NAME OFRESPONSIBLE PERSONStandard Form 298 (Rev. 8-98)Prescribed by ANSI Std Z39-18

FOREWARDThere is a civilian human resources dilemma in the Department of Defense (DoD).The Department has weathered significant drawdowns (375,796 since 1989), baseclosures, as well as shifting challenges from the defense of freedom on foreign soil tohomeland defense. The strategic plan takes into account the need to be able to movefrom a Department structured to support the Cold War to a Department structured to reactquickly to evolving missions and to deploy to any location of armed conflict. Ten yearsago, the Department had a stable civilian workforce that expected to finish its career inthe service of the Department; a workforce that was becoming computer literate; andDoD restructuring that was just beginning with the first round of base closures looming inthe future.It is difficult to overstate the effects of protracted downsizing on this Department.An analysis of the changes in the DoD workforce between September 1989 and May2001 shows the major effects on the DoD workforce1. (Figures 1 through 6)Figure 1Civilianemployment hasdecreased by 36percent, a reductionof over 375,000employees.1Note that data used in this report is from DoD automated systems, such as the Defense Manpower Data Center orthe Defense Finance and Accounting System1

Figure 2The workforce hasexperienced asignificant shiftfrom clerical andblue-collar positionsto professional,technical, andadministrative work.Figure 32

Figure 4Our workforce isbetter educated andthe percentage ofemployees withBachelors or higherlevel degrees hasincreased from 25 to32 percent.Figure 5The average yearsof Federal servicehave increased from13.4 to 17.8 years.3

Figure 6We are faced withan aging workforceand a small newgeneration ofworkers. In 1989approximately 54percent of theworkforce was morethan 40 years of age,in May 2001, 73percent were in thatcategory.Today, the workforce is a unique mix of civilian employees and contractorpersonnel providing support to the military members. Civilian employees may not stay inthe same state, let alone the same job; are not only computer literate, but are connected atall times through web-enabled equipment and cellular phones; and face continuedrestructuring of the Department. While this significant shift has taken place in theworkforce mix and Departmental mission, the Department is facing even more challengesin hiring and retaining a quality workforce.The Baby Boomers have reached the retirement zone, the Generation Xers arematuring into the mainstay of the workforce for future decades and the DigitalGeneration is waiting in the wings for future job opportunities. Yet, with these changingdynamics the Department is still using the personnel rules and regulations that reachedthe pinnacle of effectiveness a number of decades ago. Because of the resistance faced inobtaining changes to existing civilian personnel laws and regulations, the Department hasbeen provided the opportunity to test various civilian personnel flexibilities. This meansthat in addition to Titles 5, 10, 20, 28, 29, 32, 33 and 38, the Department has 10 currentpersonnel demonstration projects, one alternative personnel system, and about 57different pay plans that must be administered and supported. Figure 7 shows the January2002 distribution of DoD employees by major pay plan category.4

Figure 7This strategic plan takes into consideration all that the Department has faced in thepast few years and what lies ahead. The strategic plan is not expected to be a staticdocument, rather it has been prepared to look forward over the life of the ProgramObjective Memorandum (POM) cycle and will be updated as significant events andachievements are accomplished and new requirements added.The strategic plan imparts the Department's direction, with its vision, values,principles, critical success goals and objectives. The 2001 Quadrennial Defense Review(QDR) Report sets forth the challenges facing DoD. The plan maps out the mostcomprehensive reform of human resources programs, systems and practices in theDepartment's history. This transformation is designed to shift the basis of defenseplanning from a ‘threat based’ model to a ‘capabilities based’ model. This shift willchange the way the Department does business.5

VISIONDesign, develop and implement HR policies, strategies, systems andtools to ensure a mission-ready civilian workforce that is motivatedto excel.VALUES· High personal and professional moral standards· Honesty in word and deed· Inherent worth and dignity of every person in the workforce· Inherent worth of workforce diversity· Public service as a valued careerPRINCIPLES· Support to the warfighters and those who support them· Commitment to excellence· Best-value HR solutions· Best business practices· Flexible, customer-focused HR programs· Cost effective personnel programs· Open and honest communication· Optimum delegation authority with accountability6

BUILDING THE PLANThe starting point from which the strategic plan was built came from the QDR andthe strategic direction provided by the Under Secretary of Defense for Personnel andReadiness. The existing strategic plans for the Army, Navy, Air Force, Defense LogisticsAgency and Washington Headquarters Services were consulted and the Office ofPersonnel Management's (OPM) vision for the Federal government's human resourcesstrategic focus was reviewed. A consortium of DoD human resources (HR) Directorsparticipated in developing the strategic plan.A balanced scorecard approach was used to build the strategic plan. The balancedscorecard is a strategic management tool that provides financial and operational measurestied directly to our vision, values, goals, and objectives to give top managers a fast,comprehensive view of our business. It is both a roadmap and means of measuringperformance. The diagram below depicts the Civilian Human Resources Strategic Planin the balanced scorecard format. Details of how the balanced scorecard addresses theDoD Human Capital Initiative are outlined in the Office of Management and Budget(OMB) Scorecard Cascade at Addendum A.FinancialRecruitment – Promote focused, well-funded recruiting to hire the best talentavailableHuman Capital – Invest in human capital to improve effectiveness of the workforceCustomerWorkforce Planning –Provide management systemsand tools that support totalforce planning and informeddecision-makingCustomer Focus – Focus thehuman resources communityon the needs of its customersVisionWe will design,develop andimplement HRpolicies, strategies,systems and tools toensure a missionready civilianworkforceInternal BusinessProcessesHuman Resources Systems– Provide a HumanResources system thatensures the readiness oftomorrow's integrated forcestructureLearning & GrowthDiversity – Promote and sustain an effective civilianworkforce that is as richly diverse as America itselfQuality of Work Life – Promote Quality of Work Life asan integral part of daily operationsThe matrix at Addendum B provides initial performance indicators and measures,and success timeframes for each of the strategies and objectives identified in the HumanResources Strategic Plan. Like the strategic plan, it is not a static document, and it willbe updated as significant events and achievements are accomplished and newrequirements are identified.7

GOALS AND OBJECTIVESThe balanced scorecard approach reflects the changes the Department isundergoing and places increased emphasis on those perspectives that are important inachieving the vision. To achieve the Department's Vision, the following goals, alongwith associated strategies and objectives, provide the framework for the Department'sHuman Resources Strategic Plan.GOAL 1. PROMOTE FOCUSED, WELL-FUNDED RECRUITINGTO HIRE THE BEST TALENT AVAILABLE.STRATEGY: MARKET THE DEPARTMENT OF DEFENSE AS APREMIER EMPLOYER IN THE FEDERAL GOVERNMENT.The Department is facing a shortage of staff with the right skills and experiencedue to the anticipated retirement of employees who began Federal careers in the 1960sand 1970s, multiple reductions in force, and the minimal entry-level hiring done duringeleven years of downsizing (See Figure 1 for data on downsizing and Figure 6 for civilianage band changes between 1989 and 2001). As of May 2001, the average age of DoDemployees was 46 and 31 percent of DoD’s workforce was over age 51. The Departmentmust now take extraordinary efforts to compete in today’s marketplace for critical skillsto become an employer of choice.In determining the source of change required in legislation and departmentalregulations and practices, initial efforts will be taken by using existing flexibilities toexpand coverage of recruitment and relocation bonuses and retention allowances toFederal Wage System (FWS) employees by publishing a policy to cover FWSemployees. The Department has consistently increased the use of the bonuses andallowances to attract, relocate, or retain those with skills critical to missionaccomplishment. During Fiscal Year (FY) 2001, the use of recruitment and relocationbonuses, and retention allowances increased by 88 percent, 33 percent, and 19 percent,respectively. (Figure 8)8

Figure 8Additionally, the Department will identify incentives and features of employmentthat would attract applicants for entry through senior level positions. The Departmentwill also develop legislative and regulatory changes in departmental practices to includeProgram Objective Memoranda (POM) submissions to identify the funding levels neededto implement the program strategies.The Department needs to identify sources of expertise in academia and privateindustry to take advantage of the various external studies and evaluation information thatcan be used to develop a healthy public service organization. For example, the BrookingsInstitution’s Center for Public Service evaluated survey information from Federalemployees on challenges facing them within the current organization. The survey dataprovides information that can serve as an internal barometer. Likewise, the NationalAcademy of Public Administration conducted a study of alternative pay systems andrelated human resources management issues to help the government attract and retain askilled Information Technology workforce. The Department needs to serve as aclearinghouse to synthesize independently gathered data that can be used to improve theFederal service and develop partnerships with public and private organizations to launchprograms and eliminate the cost of duplicative research efforts. Initial efforts will betargeted to institutions that are recipients of DoD grants.Workforce planning takes on a special importance with the expected exodus ofFederal employees over the next decade. The Department estimated that 87, 504permanent employees were eligible for Optional Retirement at the end of FY 2001.Actual rates of retirement during the first year of eligibility have been decreasing. Newworkforce planning systems will allow further refinement of these estimates. (Figures 9and 10)9

Figure 9Figure 10Advanced technology, contract oversight, and a more complex mission have alsogenerated the need for a workforce with more advanced education and greater technicalskills (See Figure 3 for changes in the occupational distribution, and Figure 4 forinformation on the difference in civilian educational bands between 1989 and 2001). Asnapshot of civilians optionally eligible to retire at the end of FY 2001 showed thateligibility was fairly consistent across broad occupational categories, but that somevulnerability exists at senior grade levels. (Figures 11 and 12)10

Figure 11Figure 12Exacerbating the problem, the Department now competes for talented candidateswith hiring tools and career paths that were designed to meet the merit systemsrequirements of the previous century. Today’s candidates are different from workers of adecade earlier. The expectation was that employees entered the Federal workforce afterhigh school or college and stayed until retirement (See Figure 5 for a comparison ofcivilian length of service band changes between 1989 and 2001). Those expectationsfostered an environment of long-term security. There was no need to market the Federalgovernment as the “employer of choice.” One strategy the Department must consider isthe structured development of intern-level and mid-level employees.11

To be seen as a “first choice” employer, the Department requires a transformationto create the image of an organization where people want to work which requiresanalyzing the gap between where it is now and where it wants to be. To become theemployer of choice, the Department needs to become a center of excellence. TheDepartment will establish the requirements for a marketing program and will identify theassociated costs and POM submissions needed to establish, operate, and maintain theprogram.The Department needs to maintain its ability to perform core functions andmaintain mission readiness, and rebuild and reshape the human resources depleted byretirements, reductions in force and departures to private industry. The Department canmake great strides as an employer of choice by the strategic management of humanresources. The Department has been successful in filling behind retiring civilianemployees with members who have recently retired from military service with expertorganizational, managerial and technical qualifications. (Figure 13)Figure 13Further efforts will include the use of existing flexibilities, simplified hiringauthorities, broad banding, pay for performance, demonstration projects, and exemptionsfrom title 5 United States Code. The Department has begun by implementing authoritiesfor demonstrations in science and technology laboratories.12

Objective 1.1. Develop a recruitment strategy designed to attract candidates at anylevel.Ø Expand coverage of recruitment, relocation and retention bonuses to Federal WageSystem (FWS) employees by publishing a policy to cover FWS employees.Ø Identify incentives and features of employment that would attract applicants for entrythrough senior level personnel.Ø Determine source of change required in legislation and departmental regulations andpractices.Ø Develop legislative and/or regulatory changes.Ø Identify funding sources.Ø Develop and publish strategy.Objective 1.2. Establish relationships with industry and academia to cross-feedpersonnel, information and technical achievements along with enhanced recruitmentfocusing on institutions receiving DoD grant money.Ø Identify sources of expertise in academia and industry.Ø Identify institutions that are recipients of DoD grants.Ø Develop partnerships with the identified sources.Objective 1.3. Determine what type of intern program is needed to best meet the needsof DoD.Ø Conduct a study of current recruiting efforts against central recruitment.Ø Assessment and decision on type of program needed will include the type, scope, andfunding of the program.Objective 1.4. Assess requirements and funding sources for marketing DoD as a "firstchoice" employer.Ø Review recruiting programs to determine marketing needs.Ø Establish requirements for marketing program.13

Ø Establish cost of program.Ø Develop funding strategy.Objective 1.5. Implement HR system changes to enhance recruitment.Ø Implement authorities for demonstrations in science and testing laboratories.Ø Implement Staffing Efficiencies Working Group recommendations.Ø Review Priority Placement Program.Ø Implement Priority Placement Program changes as agreed by Components and thecatalyst session during the Department of Defense Human Resources WorldwideConference.GOAL 2. PROVIDE A HUMAN RESOURCES SYSTEM THATENSURES THE READINESS OF TOMORROW'S INTEGRATEDFORCE STRUCTURE.STRATEGY: DEVELOP A RESPONSIVE, FLEXIBLE PERSONNELSYSTEM THAT PERMITS MANAGEMENT TO MAINTAIN A MISSIONREADY WORKFORCE.The Federal personnel system has been criticized for inflexible practices causingprolonged delays in filling jobs, constrained compensation programs, insufficientmotivational tools, outdated classification systems, and a problematic philosophy thatpromotes internal equity over pay-for-performance and external competitiveness. TheDepartment recognizes that continuous improvement in the delivery of a customerfocused HR system is fundamental to the HR mission and its accountability to the DoDmission.Strategies for process improvements will begin with an assessment of current HRpractices and processes performed and, in cooperation with the Components,establishment of HR baseline information against which performance can be measured.As necessary, the Department will benchmark Component processes to gaugeperformance in specific areas for continual development of the Department'sreengineering strategies. Additionally, best practices of the Components will bereviewed to determine those that have the potential for Department-wide expansion tomeet the HR business goals. Existing demonstration projects will be evaluated and, ifneeded, authority for projects will be redefined so that desirable aspects can beexpeditiously incorporated into the Department's HR systems.14

Evaluation will also include reviewing successful industry practices that areadaptable within existing DoD rules and regulations. Practices and processes which areoutside the scope of the Department's authority will be pursued with the support of OPM,OMB, and when necessary, legislative proposals will be introduced for Congressionalconsideration.Regionalization of the Human Resources field support structure andmodernization of civilian personnel automated systems efforts have moved forwardsimultaneously. The current status of regionalization is reflected in Figure 14 below.The modern Defense Civilian Personnel Data System (DCPDS) is replacing the currentmainframe-based civilian human resources systems and multiple Component uniquesystems with an open architecture information system supported by a multi-tiereddatabase st

strategic focus was reviewed. A consortium of DoD human resources (HR) Directors participated in developing the strategic plan. A balanced scorecard approach was used to build the strategic plan. The balanced scorecard is a strategic management tool that provides financial and operational measures

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