ED 041 199

TITLE

INSTITUTIONPUB DATENOTEAVAILABLE FROM

EDRS PRICEDESCRIPTORS

IDENTIFIERS

ABSTRACTThe Presidential Task Force on Career Advancement

reviewed post-entry training for Federal employees in professionaladministrative and technical occupations. Training was found to begood; but in this report needed improvements are deliberatelyhighlighted. The Task Force found that all of its recommendations canbe carried out under the Government Employees Training Act of 1958.Some agency training does not provide knowledge or develop skillsneeded by management before they are advanced to higher levels; andtraining is less available in the field than in Washington. Agenciesdiffer widely in the extent and quality of training for specialists.Of the 57 agencies providing the Task Force data, 56 sent employeesto interagency training programs; over half of this training wasprovided for management--professionals had little coverage andtechnicians but 17% of courses. Agencies lack clear policies on whenemployees might appropriately be enrolled in universities. The CivilService Commission, in a new role, should provide agencies withinformation, advice, and counsel on training problems in a number offields. Training and education are capital investments whicheventually contribute to the Nation's gross national product. Theabsence of develcpmental programs with the resultant loss of peakperformance can cost more than training. (NL)

DOCUMENT RESUME

AC 006 989

Investment for Tomorrow; A Report of thePresidential Task Force on Career Advancement.Civil Service Commission, Washington, D.C.6775p.Superintendent of Documents, U.S. GovernmentPrinting Office, Washington, D.C. 20402 ($0.60)

EDPS Price MF-$0.50 HC Not Available from EDPS.Administrative Personnel, Career Planning, FinancialPolicy, *Government Employees, *Inservice Education,interagency Cooperation, Manpower Needs,Orientation, Prediction, Program Administration,*Program Improvement, *Research Committees,Specialists, Subprofessionais, Technical Institutes,UniversitiesGovernment Employees Training Act, Presidential TaskForce on Career Advancement

Investment for TomorrowU,S, DEPARTMENT Of HEALTH, EDUCATION & WELFARE

OFFICE OF EDUCATION

THIS DOCUMENT HAS BEEN REPRODUCED EXACTLY AS RECEIVED FROM THE

PERSON OR ORGANIZATION ORIGINATING IT, POINTS Of VIEW OR OPINIONS

STATED DO NO1 NECESSARILY REPRESENT OFFICIAL OFFICE OF EDUCATION

POSITION OR POLICY,

A REPORT OF THE

PRESIDENTIAL

TASK FORCE

ON

CAREER

ADVANCEMENT

111111l.

Investment for TomorrowA REPORT OF THE

PRESIDENTIAL

TASK FORCE

ON

CAREER

ADVANCEMENT

Printed by Direction of the

President of the United States

Distributed by U.S. CIVIL SERVICE COMMISSION WASHINGTON, D.C. 20415 1967

.****..*

Contents

Membership of the Task Force

Transmittal Letter

iv

Chapter 1. Summary and Recommendations 1

Chapter 2. Sharing an Investment 12

Chapter 3. The Individual and the Organization----. i.5

Chapter 4. A Forecast 21

Chapter 5. Development for Administration_ 24

Chapter 6. Development for Specialization 31

Chapter 7. Interagency Training 41

Chapter 8. Education 45

Chapter 9. Planning, Programing and Operating 53

Chapter 10. Authority and Responsibilities 62Appendix: The Pattern of Responsibilities- 65

Chapter 11. Next Steps 66

Acknowledgements 68

iii

THE PRESIDENTIAL TASK FORCE ON CAREER ADVANCEMENT

Dr. Marvin H. BerkeleyCorporate Personnel DirectorTexas Instruments, Inc.Dallas, Tex.

Mr. Andrew BiemillerDirector of LegislationAFLCIOWashington, D.C.

Mr. Lawrence BingerCorporate Director,

Personnel ServicesMinnesota Mining &

Manufacturing Co.St. Paul, Minn.

Dr. James H.PresidentSouthwest TSan Marcos,

Member RepresentedMr. McGeorge Bundy

Mr. McGeorge BundyPresidentThe Ford FoundationNew York, N.Y.

Dr. Robert D. CalkinsPresidentThe Brookings InstitutionWashington, D.C.

Hon. John W. GardnerSecretary of Health, Education, and

WelfareWashington, D.C.

McCrocklin

exas State CollegeTex.

ACTIVE ALTERNATES

Dr. Robert D. Calkins

Hon. Charles L. Schultze

Hon. John W. Gardner

Dr. James H. McCrocklin

Mr. Andrew Biemiller

Dr. Jerome H. HollandPresidentHampton InstituteHampton, Va.

Dr. Evron KirkpatrickExecutive DirectorAmerican Political Science

AssociationWashington, D.C.

Hon. John W. Macy, Jr.Chairman of the Task Force andChairman, U.S. Civil Service

CommissionWashington, D.C.

Hon. Charles L. SchultzeDirectorBureau of the BudgetWashington, D.C.

AlternateMr. Verne S. AtwaterVice President for AdministrationThe Ford FoundationMr. James M. MitchellDirector, Advanced Study ProgramThe Brookings InstitutionHonorable Roger W. JonesSpecial Assistant to the DirectorBureau of the BudgetMr. Donald F. SimpsonAssistant Secretary for AdministrationDepartment of HEWMr. James B. HobbsAssistant to the PresidentSouthwest Texas State CollegeMr. Markley RobertsAssistant to the DirectorAFLCIO

iv

TASK FORCE STAFF

Ross PollockExecutive Staff Director( loaned by theCivil Service Commission)

John J. BeanResearch Associate( loaned by theDepartment of Labor)

Norman L. LintonResearch Associate(loaned by theAtomic Energy Commission)

PRESIDENTIAL TASK FORCE ON CAREER ADVANCEMENTWASHINGTON, D.C.

DEAR MR. PRESIDENT :

When you appointed the Presidential Task Force on Career Advancement,you asked us to make recommendations on post-entry training and educa-tion for the 760,000. Federal professional, administrative and technical em-ployees. Our study shows that action is indeed needed. Changes in tech-nology, organizations, and programs will require present employees to learnnew skills and knowledges. Changes in personnel will create anothertraining need. About 67,500 will be hired each year as replacements forthose who are leaving Government and an additional 22,500 may be hired to

. staff new programs.

With help from officials in industry, in the universities, in our own andother Governments, we have examined the most pressing employee devel-opment problems and explored the best known ways of dealing with them.Our Report, enclosed, records both our findings and our recommendationsfor improving training and education for professional, administrative andtechnical employees in order to give the public the best poss ible service.

Respectfully yours,

Marvin H. BerkeleyAndrew BiemillerLawrence BingerMcGeorge BundyRobert D. Calkins

JOHN W. MACY, Jr.Chairman

John W. GardnerJerome H. HollandEvron KirkpatrickJames H. McCrocklinCharles L. Schultze

Chapter One

Summary and Recommendations

This is an age of change and Government's pro-fessional, administrative, and technical employeesare major agents of this change, not only in ourcountry but around the world. They search outproblems, probe for answers, recommend solutions,and actact to rehabilitate cities, provide medicaland financial support for the aged, reduce air andwater pollution, investigate discrimination in em-ployment and deprivation of the right to vote, bringpublic offenders to justice, protect the small in-vestor, and perform a thousand other publicservices.

The President asked the Task Force to reviewcritically the post-entry training and educationalprograms for Federal employees in professional, ad-ministrative and technical occupations. He chargedthe members with responsibility for recommendingaction that would exploit to the maximum the bestmethods for learning and for renewal in a time ofchanging technology.

In this chapter, the Task Force presents key find-ings and recommendations. Federal agencies havemuch to be proud of. Their training for profes-sional, administrative and technical occupations isgood. However, deliberately highlighted here areneeded improvements. This will sound critical.That is the job of a Task Forceto analyze, to findhow to make good programs better, weak onesstronger. Its goal is to point the way by whichFederal training and education can become not justgood but excellent.

The recommendations are presented in thischapter in this order:

A. Government-wide PolicyB. Programs for ManagersC. Programs for SpecialistsD. Interagency TrainingE. Education

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F. Civil Service CommissionG. Agency Operations

(Note: the numeral following a recommendation refersto the chapter in this Report in which it is discussed.)

A. GOVERNMENT-WIDE POLICY

The Government Employees Training Act of1958 provides the means for keeping these key em-ployees "well abreast of scientific, professional, tech-nical, and management developments both in andout of Government." The Act was implementedin 1959 by Executive Order 10800. The Task Forceconsulted with agency officials on these and on theCivil Service Commission's regulations and instruc-tions.

Legislation

Agency and Commission officials report that theGovernment Employees Training Act as amendedpermits the President and agency heads to estab-lish needed training and education programs. TheTask Force found that all of its recommendationscan be carried out under this Act.

Finding

The Task Force has no recommendation tomake on new legislation for training and educa-tion for professional, administratiVe and tech-nical employees (10) .

Presidential Policy

Executive Order 10800 was issued ,in January1959 before agencies had experience in using theirnew authority. A new directive is needed which

will reflect this experience and the best practices inindustry.

Recommendation

To update Government-wide policies on trainingand education, the Task Force recommends that thePresident :

Issue an Executive Order which establishes basicpolicy for improvement of the public servicethrough maximum exploitation of better train-ing and education, taking into account pro-ductive new practices in industry and. Govern-ment ( 11) .

Staff Assistance for the President

The President shbuld have staff assistance so thathe may be advised on progress in improving trainingand educational programs. The Civil Service Com-mission is the logical agency to provide this serviceto him.

Recommendation

The Task Force recommends that the President :Direct the. Civil Service Commission to planand promote the development, improvement,coordination and evaluation of Federal civilianemployee training programs (10) .

Executive Development

As the Task Force looked at the Federal serviceGovernment-wide, it seemed clear that the President and the heads of agencies need career execu-tives who can be free from the provincialisms ofoccupation and specialization as they advise on anddirect Federal program,. An agency head needscareer executives who can alert him to new andimpending problems, direct teams of experts, inte-grate them into productive performance, deal withclientele groups effectively, and put new programsinto operation. This requires skills and knowledgewhich take years to develop. The Task Force findsthat few agencies plan and call y out sound execu-tive development programs. This is a seriousdeficiency.

The President in Executive Order 11315, issuedNovember 1966, created an Executive AssignmentSystem which calls for periodic review of plans forstaffing upper - level positions, provision of a broaderbase for search for career executives in Govern-ment and out, increased utilization of executive

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talent, and increased recognition and opportunityfor personal development. He directed the CivilService Commission to recommend a program forthe training and development of career executives.The Task Force wholeheartedly supports this orderas it provides an affirmative framework for execu-tive development and facilitates the implementa-tion of its recommendations.

Recommendations

To take full advantage of the new Executive As-signment Sytem, the Task Force recommends thatthe President direct the Civil Service Commission inconsultation with agencies to:

Identify for developmental purposes the knowl-edge and skills needed by career executives toimprove performance (5) ;Establish a program of intensive, full-timeresidential training for career executives whichwill :

(1) Enable them better to supply continuityand responsiveness in Government operations,

(2) Provide them with concepts and knowl-edge that they can use toward further self de-velopment, and

(3) Enable them to render more valuableservice to the agency heads, the President andthe public (5) ;Open assignments to carrer executives; shortand long term, in Government agencies otherthan their own or to training assignments out-side Government which provide experiencesthat will supplement agency efforts to developbroad viewpoints (5) .

The Task Force also recommends that the Presi-dent direct the heads of agencies to :

Take steps which will develop in career execu-tives broad viewpoints as free as possible fromthe provincialism of occupation and specializa-tion (5) ;Support the full-time residential training forcareer executives when it is established by theCommission (5) ;Devebp programs of training and educationfor outstanding specialist managers which willbroaden their knowledge, sharpen their skillsand improve their potential for advancementto executive posts (5) ;

Designate a high-ranking official to activate anexecutive development program and provideresources to implement it (5) .

Implementation of This Report

This Report deals with 760,000 professional, ad-ministrative, and technical Government employees.To get its recommendations for these groups im-plemented, the Task Force recommends that thePresident ask agency heads to :

Review the Task Force report and periodicallyprovide the Civil Service Commission state-ments on their progress in implementing it(11) .

The Task Force further recommends that thePresident ask the Civil Service Commission to:

Provide agencies advice on implementing thisReport both in writing and through consulta-tions (11) ;Analyze agency statements on its implementa-tion and advise the President on progress beingmade ( 11) .

Because these recommendations may not alwaysfit the needs of other groups as well as those ofprofessional, administrative and technical employ-ees, the Task Force recommends that the Presidentdirect the Civil Service Commission to :

Coordinate and initiate with agency coopera-tion studies of training and education neededfor major educational groups not covered inthis Report (11) .

B. PROGRAMS FOR MANAGERS

1 The Task Force found that most Federal mana-gers and supervisors move into their jobs with ex-cellent knowledge of a specialty but less-than-de-sirable knowledge and skill in their leadership roles.Although management is an art, talent in this fieldcan be developed through on-the-job counselingand formal training.

Studies by the Task Force show that some agencytraining does not regularly provide the knowledgeor develop the skills needed by those moving throughthe management hierarchy before they are advancedto higher levels. They show that the training ofsupervisors and managers is sometimes blurred to-gether, instead of being aimed specifically at thevery different needs of each. They show that*while Araining is often readily available in Washing-ton, it is less so in the field.

Recommendations

The Task Force recommends that the President :Direct agency heads to develop programs which

will encourage people of outstanding poten-tial to prepare themselves in early stages oftheir careers for possible advancement to top-career levels and to supplement self develop-ment with appropriate training and education

(5)The Task Force further recommends that agency

heads :

Give employees with potential preparatory as-signments, experiences and training beforethey are placed in leadership posts (5) ;See to it that those selected to become mana-gers and executives possess knowledge, abili-ties and skills required to integrate their or-ganizations into the agency and Government,to direct and carry out assigned missions, andto maintain sustained high quality and effi-cient performance (5) ;Place on executives the responsibility for thetraining and education of managers, and thata system be established for monitoring the effec-tiveness with which this is done on the job andin formal courses (5) ;Create effective programs which enlarge eachmanager's depth of understanding of the pro-fessional, scientific or technical fields under hissupervision (5) ;Increase each manager's skill in the techniquesof management and the processes of admin-istration; extend his effectiveness in dealingwith Federal employee organizations underExecutive Order 10988; develop his capacityfor efficient use of resources; broaden his under-standing of agency and Government missions;.and sharpen hiF, ability to relate his assignmentto national goals (5) ;Make certain that managers provide muchmore on-the-job training and guidance of su-pervisors than they now do (5)

C. PROGRAMS FOR SPECIALISTS

Government will recruit about 90,000 profes-sional, administrative, and technical employees an-nually for the next 10 years to replace those wholeave and to staff new positions. The training ofthese newcomers will be complicated by rapidchanges in methods, technology, occupational

3

requirements and Government programs.The Task Force finds that agencies differ widely

in the extent and quality of their training for special-ists. Those that have career systems find them to beespecially valuable for professional, scientific, andadministrative employees. They provide moreorderly establishment of standards for advancement,more purposeful competition for promotions, andmore timely and useful training and education.Career systems are discussed more fully under sec-tion G of this chapter, "Agency Operations."

Agencies would benefit if they made greater useof master professionals for the training of less ex-perienced employees. On the other hand, betterplanning and clearer goals should be establishedfor the training of the masters. Additional in-service training for them is needed.

Administrative-technical employees, usually col-lege graduates but not serving in professional posi-tions, have parallel needs.

Recommendations

The Task Force recommends that the heads ofagencies:

Create conditions for professional, scientific andadministrative employees where the need forself development is apparent, personal effortsare rewarded, study materials are readily ac-cessible, and opportunities to use new knowl-edge, concepts and skills are made available(2, 6) ;

Review their orientation programs for profes-sionals, scientists and administrative-technicalemployees to :

( 1 ) Set clear goals,

(2) Identify and, assign newcomers for ori-entation to supervisor-manager teams with out-standing training capacities, and

(3) Reorganize formal programs so thatthey will supplernelA on-the-job training andcommunicate occupal lona' and Governmentstandards and values (6) ;

Establish systems for a continuing review ofspecialist training reds and for job rotationand in-service courser, to meet most of theseneeds (6) ;

Review their present in-service training forprofessionals, scientists, and administrative-technical employees to make sure that the more

4

experienced and the most able are assigned togive needed training to others (6) ;

Provide standards for advancement to impor-tant career stages and establish review systemswhich advance only professionals of excellence(6) ;

Establish a sound system for selecting the bestof experienced professional, scientific and ad-ministrative employees for assignment to full-time and residential training which willsupplement their self development; for settingobjectives for such training; for maintainingrelationships with the trainee while away fromthe job; for orienting the trainee back to works,preferably in some new assignment; and forevaluating agency experience with such train-ing (6) ;Create systems which will identify marginalproducers among their professional, scientificand administrative-technical employees andprovide them counseling, training, education,or reassignments (6) .

Technicians

The Task Force, looking at post-entry training,could not ignore the shortage of trained technicians.Those coming from various technical training in-stitutions will hardly meet half the demand in Gov-ernment, industry and research organizations. Thismeans that the technical training will have to occuron two levels : ( 1) For those with formal trainingand (2) for those with unspecialized education.

Recommendations

The Task Force recommends that the heads ofagencies:

Review their recruiting and training programsfor technicians, plan what training is neededfor the kinds of recruits they are likely to obtainand at what levels, and then make sure thatneeded training Li provided at the time it isneeded (6) ;Establish systems whereby :

( 1 ) The opportunities for upgrading totechnician jobs are effectively communicated toemployees and to employee organizations,

(2) Those who express interest are rankedas to their potential for such assignments, and

(3) The best of these tire trained for thejobs (6) ;

Make manpower studies to determine howmuch routine professional work can be trans-ferred to technicians, how many less profes-sionals and how many more technicians thiswould require, and to make 5-year projectionsof both the need for technicians and the prob-able supply (6) .

The Task Force was informed that technicaltraining institutions need more faculty and equip-ment.

Recommendation

The Task Force recommends that the Commis-sioner of Education:

Look into technician training and take steps to:( 1) Improve the quality of pre-entry train-

ing of technicians,(2) Provide more adequate facilities and

equipment in technical training institutions,and

(3) Attract greater numbers of trainees toareas of greawst technician shortages (6) .

Attorneys ane., Sconomists

The Task Force looked specially at attorney andeconomist training and education as examples ofthe problems to be faced in career development forprofessional employees. It has recommendationsfor these groups and it is likely that similar recom-mendations could be made for others.

Recommendation

The Task Force recommends that officials incharge of programs employing attorneys andeconomists:

Seek advice and assistance from professional so-cieties, university scholars, personnel officers,and the Civil Service Commission in establish-ing agency programs of career advancement,training and education for attorneys andeconomists ( 6) .

D. INTERAGENCY TRAINING

Of the 57 agencies providing the Task Force data,56 of them sent employees to interagency trainingprograms. This form of sharing of training by oneagency with another was created by the Govern-ment Employees Training Act. In fiscal year 1966,65,000 employees participated in these courses.However, 94 percent of the training was providedby 6 agencies.

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Over half of the interagency training was pro-vided for management. Professionals had little cov-erage and technicians but 17 percent of the courses.

The Task Force ascertained that interagencytraining has many advantages, including lower cost,better quality and a reduction in duplication oftraining effort.

Recommendations

The Task Force liked what it saw of interagencytraining and recommends that the President

Provide that agencies shall share their trainingfacilities and cooperate in interagency trainingwhenever this will result in savings for Gov-ernment or produce better service to the public( 7) .

The Task Force recommmends that heads ofagencies:

Open their training programs to employeesfrom other agencies (7) ;Cooperate with each other and with the CivilService Commission in continuing and expand-ing interagency programs (7) ;Establish a policy which calls for reimburse-ment for their training services to otheragencies (7) .

The Task Force would like the Civil ServiceCommission to take leadership in extending andimproving interagency training. It therefore rec-ommends that the Commission :

Identify major functional areas in which newor additional interagency training is needed(7) ;

Negotiate with the agency having prime re-sponsibility for a function either to provide thattraining or to provide advice on course content

) ;Take steps to have such courses set up and con-ducted as often as needed and in convenientlocations in Washington, the field and overseas(7) ;Explore with appropriate agencies means bywhich interagency training can be establishedand offered such professionals as economistsand attorneys (6) ;Assist agencies to provide conveniently locatedinteragency training in the field and overseas,and coordinate the scheduling of courses, asneeded (7) ;Inventory agency training centers and maketheir programs known to all agencies (7) .

E. EDUCATION

The Task Force received projections that thenumber of bachelor's degrees in the natural sciences,social sciences, humanities and, related professionswill increase by 68 percent in the coming 10 years.Moreover, the number of master's degrees will goup 83 percent and doctorates 94 percent. It is easyto deduce that universities will continue to be underheavy pressures.

The Task Force found that agencies lack clearpolicies on when employees might appropriately beenrolled in universities. It concludes that uni-versities should be used primarily for basic educa-tion and knowledge of academic disciplines, forpreparation for professional careers, for broad learn-ing about our society, and for horizon-stretching forselected, experienced career officers. It also con-cluded that Government may be best suited to pro-vide training and education (1) in specializationsdealing with specific applications of theory to Gov-ernment programs; (2) in techniques closely re-lated to work performance; (3) on agency andFederal policies, programs and procedures; and(4) in frontier areas such as space technology,where the agency's program is a prime source ofadvanced, specialized knowledge.

Recommendations

The Task Force recommends that the President :Enunciate a policy that agencies shall use Fed-eral facilities for training whenever this willresult in savings for Government or producebetter results at lower costs (8) .

The Task Force also recommends that the Presi-dent direct agency heads to :

Analyze and clarify policies for support of em-ployee training and education :

(1) To distinguish more clearly betweeneducation and training which should be Gov-ernment conducted and that which should beprovided in universities, and

(2) To make certain that such training andeducation supports agency mission and its man-agement needs (8) ;

Establish a policy which makes clear:(1) That except in special cases (see chap-

ter 8) , employees are to obtain undergraduateeducation at their own expense or throughscholarships and loans, and

(2) The limited circumstances in whichemployees may be supported at agency ex-pense in undergraduate courses (8) ;Establish policies on graduate education whichmake clear;

(1) To professional and administrative ern-ployees the vital necessity of graduate educa-tion,

(2) To managers and executives the im-portance of budgeting for reasonable and ade-quate support of graduate education, and

(3) To both groups that graduate educa-tion is to be awarded competitively withinbudgeted funds in order of its potential con-tribution to agency mission (8) ;Make clear that graduate courses should begranted competitively to employees who:

(1) Need education related to present or fu-ture job performances (and not solely to get adegree) ,

(2) Are specialists needing broadening forfuture work assignments (8) ;Direct executives to stretch the funds availablefor graduate education to reach as many pro-fessional and administrative employees as pos-sible through having employees share its costs(8) ;Seek to attack the causes of shortages when pro-fessional, administrative, and technical recruitsare in short supply, and limit the use of educa-tional courses as a recruiting incentive exceptwhere needed to compete (8) ;Provide more training and education in agencyfacilities to update both specialists and special-ist-leaders (8) .

The Task Force learned that legislation is undercoalderation which would forgive half of a Na-tional Defense Education Act loan for collegiatestudy if the student entered State or local govern-ment.

The Task Force recommends that the Secretary ofHealth, Education, and Welfare:

Make sure that if educational loans are to beforgiven in whole or part for those who enterthe public service that such action apply tothose who enter the Federal service (8) .

Mid-Career University Education

The Task Force realizes that universities faceheavy demands on their facilities. However, Gov-

6

1 ernment and industry have a common need; Toupdate professional, administrative, and technicalemployees during their working lives. Most uni-versity couraes, as now offered, are aimed at in-experienced rather than mature persons.

Recommendation

The Task Force recommends that:Universities create new types of academic pro-grams for the midcareer updating of Federalemployees in professional, scientific, and ad-ministrative fields (8) .

F. CIVIL SERVICE COMMISSION

The Task Force finds that while the Civil ServiceCommission's fine interagency training program hasgrown apace, its other services have remained in-adequate. The time has come to redress the bal-ance. The Commission should be better equippedto provide the President and agency heads adviceand counsel on training and education.

The Commission's interagency training has beenable to keep pace with changing demand because itis funded by charges made to agencies. The morethe demand, the greater the response. The leader-ship functions are funded by direct appropriations,D the Commission which have remained at almostthe same level for five years. A lot has happenedin that time and a new role is indicated.

Recommendations

The Task Force recommends that the Civil Serv-ice Commission seek and that the President and theCongress provide :

( 1) Resources for staff assistance to the Presidenton training and education, and

(2) Resources for Government-wide coordina-tion, information analysis, advice, assistanceand leadership in the field of career systems,training and education ( 11) .

The Task Force recommends that the Civil Serv-ice Commission :

Counsel heads of agencies and top-level execu-tives as needed to improve development, train-ing, and education for administration (5 ) .

The Civil Service Commission and the Bureau ofthe Budget should jointly move agencies towardbetter budgeting practices in the training field. TheCommission should train line officials and employee

7

development officers in how to make the analysesand presentations needed.

The Task Force recommends that the Bureau ofthe Budget and the Civil Service Commission:

Work closely together in assisting agencies torelate their training and education programs tothe planning-programming-budgeting system(9) ;

Assist agencies to develop sound program andfinancial plans for their training and education

(9) .In addition, the Task Force recommends that the

Civil Service Commission:Continue to give advice, assistance, and infor-mation to agencies on their manpower planning

(9) .

The Commission in a new role should provideagencies information, advice and counsel on theirtraining problems in a number of fields. The TaskForce, therefore, recommends that the Civil ServiceCommission:

Provide technical assistance to agencies on de-veloping supervisors, managers, and executiveson the job and off (5) ;Provide technical assistance to agencies in im-proving their training and educational pro-grams and systems for career advancement (3) ;Report to the President on the success withwhich agencies maintain career advancementsystems (5) ;Conduct research and development on the eval-uation of training and education and adviseagencies on evaluation methodology (9) .

The Commission now inspects agency training.The Task Force did not review this process, but hasthree recommendations :

Check on how agencies relate their manpowerplanning to training and education programs(9) ;Pay special attention to the training and educa-tional opportunities available to professional,administrative, and technical employees insmall field units (9) ;Improve its evaluations of agency trainingplans and programs (9) .

Handicapped in its studies by the lack of informa-tion, especially solid statistics, about training andeducation, the Task Force recommends that theCivil Service Commission :

With agency cooperation design a new report-ing system for training and education in theFederal service (9) .

The Training Act requires employees to remainin Government service for a period of time aftertraining in non-Governmental institutions, or to payback certain costs, other than salary. Two of thepresent requirements seem too stringentthe recap-ture of money from the estates of deceased em-ployees and the potential recapture from anemployee who moves from one agency to another.

The Task Force recommends that the Civil Serv-ice Commission:

Reduce the stringency of requirements forobligated service for:

(1) Employees who move from one Federalagency to another, and

(2) Estates of deceased employees (8).

G. AGENCY OPERATIONS

The Government Employees Training Act di-rects the heads of agencies to "prepare, establish andplace in effect a program * * * and a plan there-under * * * for the training of employees." Thismakes agency heads responsible for the develop-ment of their employees. The Task Force, there-fore, has directed a number of its recommendationsto these officials,

The Task Force finds that training and educationare capital investments, shared by employee andmanagement, which contribute significantly to im-proved quality and greater quantity of work pro-duced, and eventually, to growth in the Nation'sgross national product. Government must investwisely in training and education, but it must provideadequate fun& and reasonable periods of time awayfrom the job if it is to get the best returns. TheTask Force concludes that the absence of develop-mental programs with the resultant loss of peakperformance can cost more than training.

Self Development

While the Task Force found Federal agencies gen-erally quite effective in Formal training, such as thatgiven in classrooms, it observed that most agencieslack systems to monitor the effectiveness with whichsupervisors and managers develop a work environ-ment that stimulates employees to self development.Training is a necessity in this age for our profes-sional, administrative and technical employees, andGovernment cannot afford to neglect on-the-job

development which is indispensable and often thebest kind of training.

Management support for self development is bestwhen it is systematically planned. For example,individuals should be analyzed as to their strengthsand weaknesses. Groups or occupations should bestudied to determine what self-instruction materialsare available and what are needed. Professionalassociations and employee organizations should beasked to contribute their views on self training andto give their support to it,

8

Recommendations

The Task Force, therefore, recomroends thatagency heads:

Insure that managers and supervisors in theirday-to-day work relationships enable employ-ees to realize that their own immediate andlong-range goals can be compatibly integratedwith agency operational objectives and withlong-range Government goals (2) ;Take advantage of the variety of work and theflexibility of assignment to provide work ex-periences which will promote growth, stimu-late self development, and bring about im-proved public service (2) ;

6 Establish systems for monitoring and evaluat-ing on-the-job training (3) ;Adjust their personnel systems and build tradi-tions which support employee self development

(9).

Career Systems

Money spent on training and time allowed for itwill be much better invested by both managementand employees if training is planned, coordinated,and directed wisely. The Task Force came to theconclusion that agencies which Jaye career systemsattract better quality rep ruits: tnd put them intoproduction more quickly' ki providing profes-sional, administrative awl t ethnical employeessuperior preparation for advancement, agencieswith career systems get higher quality and greaterquantity of work, and more readily hold on to theirskilled people. Training and education are impor-tant factors in such career systems.

Recommendations

The Task Force recommends that agency headswho do not now have career systems for their pro-fessional, administrative and technical employeesshould :

Direct the establishment of and guide the op-eration of career systems for the advancement,training, and education of professional, ad-ministrative, and technical employees (3, 9) .

To improve training for professional, adminis-trative and technical employees, whether or notthey are in full-fledged career systems, the TaskForce recommends that agency heads:

Review their orientation programs to makecertain that they motivate professional, admin-istrative and technical employees to early habitsof self-development and foster attitudes appro-priate to those in public service ( 3) ;Make sure that supervisors and managers un-derstand how to motivate individual learning(3) ;Review and improve practices used by man-agers and supervisors for on-the-job trainingand development (3) ;Provide specifically in performance appraisalsystems for review and feedback to supervisorsand managers on their staff development activ-ities (3, 9) .

Plans and Programs

The Task Force reviewed the pattern of grants oftraining authority to subordinate units of agencies.Agency heads acted cautiously in the early daysfollowing the passage of the Training Act, andsome have not updated their issuances in the lightof current experience. The Report in chapter tensuggests a policy for a system of delegations.

One of the common informal statements made toTask Force members was that training programs toooften lack essential resourcesmoney, men, mate-rials, and space. The Task Force is of the opinionthat sound planning, programming and budgetingof training would do much to correct the situation.This Report, therefore, goes into manpower plan-ning, cost-benefit analysis, program choices, andevaluationmatters which are not too often wellhandled when training seeks allotments.

Recommendations

The Task Force recommends that agency heads:Review their delegations for training andeducation of professional, administrative, andtechnical employees and revise them to pro-vide:

( 1) Stimulus to active, continuing trainingand education,

(2) Authority for management to take anget prompt action in accordance with Govern-ment and agency policies and procedures, and

(3) Evaluations and controls which flagneeded changes or remedial actions (10) ;Support the Civil Service Commission's MUSTprogram by opening more training opportuni-ties to employees who have been disadvantagedeconomically and educationally (3) ;Make sure that career advancement, training,and educational opportunities are equitablyopen to qualified employees regardless of race,creed, color, nationality, or sex (3) ;Provide systems which will anticipate techno-logical changes and plan for needed new orrevised training and education (4) ;Direct appropriate subordinates to project theirneeds for professional, administrative andtechnical employees and use these manpowerprojections in 'planning training and educa-tional programs (9) ;Provide in their budgets both funds and man-years available for training and education (9) ;Make clear to their career and noncareer exec-utives the importance of including programsfor training and education in the planning-programming-budgeting system proposalswhich are presented to them for approval (9) ;Take steps to improve the programming oftraining and education, the study of its costbenefits, and the evaluation of its contributionto agency objectives and performance (9) ;Direct appropriate officials to provide betterquantitative and fiscal data on training andeducation, such as the number of employeesto be trained, the number of courses, timeaway from the job, capital outlays, and re-search and development expenditures (9) .

Field Employees

The Task Force found that training in all cate-gories, professional, administrative and technical,does not always reach field employees, especiallythose at small or isolated activities.

Recommendation

The Task Force recommends that the heads ofagencies :

Make certain that developmental opportuni-ties, training and education are available toprofessional, administrative and technical em-

ployees who work at remote locations, in smallgroups, or alone (5, 6) .

The Civil Service Commission should bring theneeds of these employees to the attention of agencyofficials. (See the recommendation, earlier in thischapter, that Commission inspections should "payspecial attention to" training and educational op-portunities "in small field units.")

Charging Costs

The Report goes into the methods fuL chargingcosts of training. The Task Force believes that moresupport would develop for training if its costs werecharged normally to the program or function whichbenefits. This would bring line officials directlyinto determinations as to what training is neededand how much time and money should be allottedto it. Research and development, executive devel-opment, orientation, and other general expenses noteasily allocated to one function or program mightbe appropriated for separately.

Recommendation

The Task Force recommends that agency heads :Charge the costs of training and education tothe programs and functions that benefit fromthem (9) .

A Tax Problem

The Task Force reviewed a proposal to tax thevalue of training in educational institutions if itprepared or enabled an employee to perform adifferent job.

Recommendation

The Task Force recommends that the Secretary ofthe Treasury:

Act to protect the investment of Governmentand employees in training by excluding fromincome of Federal trainees payments made bythe Government to non-Federal facilities fortheir instruction (9) .

Budget Reviews

The Director of the Bureau of the Budget hasresponsibility for Government-wide policy on plan-ning, programming, and budgeting. His guidanceto agency program and budget officials would helpcorrect the present situation.

Recommendation

The Task Force recommends that the Director ofthe Bureau of the Budget:

In budget reviews and analyses of managementand organization, check on the adequacy ofagency funds and man-years for training andeducation leading to improved public service,efficiency and economy (10) .

Information About Training

The Task Force found that better informationabout training is needed both for management andemployees.

Recommendations

The Task Force recommends that agency heads :Make substantial improvements in their infor-mation systems for training and education inorder to provide readily accessible and currentdata to management at all levels of the organi-zation (9) ;Publicize broadly to employees and employeeorganizations their training and education op-portunities and counsel them on such programs(9) .

Employee Development Officers

In spite of the fact that Government has manyfine employee development officers who do theirjobs well, it does not appear that as a group theyare sufficiently influential with managers at alllevels.

The Task Force uncovered some interesting factsabout these officers. Thcy are somewhat olderthan might be expected-40 percent are 50 andolder. They are somewhat less educated as agroup than one might expect-34 percent lack acollege degree. As the projections prepared for theReport show that up to 3,000 such new officers willbe needed in the next 10 years for jobs that will bemore demanding than ever, the Task Force feels thatthis occupational group needs some specialattention.

The Task Force also found some reluctance inagencies to adopt new training methodology.

Recommendations

The Task Force recommends that heads ofagencies :

Review performance requirements for em-

ployee development officers and prepare a 5-year manpower plan which will insure a sup-ply of such officers with the education, train-ing, and experience needed in the light of theagency's changing programs and objectives(9)

The Civil Service Commission now offers trainingto employee development officers. The Task Forcewould like to see it continue this effort and alsohave it support agency efforts to recruit excellentpeople for these jobs. It therefore recommendsthat the Civil Service Commission:

Assist agencies to establish recruiting require-ments and attract persons to employee develop-ment officer positions (9) ;Take steps to see that adequate training andeducation is provided for the employee devel-opment officer of the future (9) .

To improve training methodology, the Task Forcerecommends that agency heads :

Encourage experimentation in training tech-

264-239 0 - 67 - 2 11

niques including the development of grouptraining methods, system training, programmedlearning, and other innovations (3) .

Sources

The Presidential Task Force on Career Advance-ment enjoyed its work with industrial and Federalofficials. Agencies responded readily to requestsfor information. Some of this, condensed, has beenrecorded in an Annex to this Report. The originalpapers drafted for the Task Force have been filed inthe archives of the Civil Service Commission.Scholars may wish to review them to see if theywould like to make their own findings and recom-mendations.

Readers can get the flavor of the Report fromthis first chapter, but the Task Force urges them togo into the chapters which follow, since many sug-gestions had to be left in the text for lack of roomfor them here.

Chapter Two

Sharing an Investment

All 10 of the companies found by a jury of 300highly placed industry executives to be the bestmanaged in the United States have active, continu-ing management development programs. Federalagencies appraised by Government executives asabove-average performers have above-average man-agement and specialist training programs. TaskForce members believe that this is no coincidence.Effective training can and does bring about im-proved performance. This conviction stands be-hind every recommendation in chapter one, everysuggestion in this Report.

Training calls for the shrewdest investment oftime, skill, and money if it is to produce creditabledividends.

Because it is such an influential instrument, inthis chapter we will explore the nature of trainingand its goals.

What Is Training?

When a specialist shows a technician how to feeddata into a computer, when a chemist tells an assist-ant how to change a procedure, when an experi-enced executive explains to a new official how toprepare for a Congressional hearing, we say that oneman is training the other. Here we oversimplify.Showing and telling are only components. Socialscientists and educators have considerable evidencethat training is far more complex and difficult. Itbegins within the individual.

The Employee's Responsibility

In 1958, the Congress and the President orderedFederal managers to establish training programs.The Government Employees Training Act says : "itis necessary and desirable in the public interest thatself-education, self-improvement, and self-training

12

* * * be supplemented by Government-sponsoredprograms." In short, the Act placed the basic re-sponsibility for his own development on the ini-tiative of the employee himself, and trade all othertraining supplemental to his efforts, if he wants tolearn, to advance, opportunities are at hand to helphim. Once he is motivated to seek them out, hewill get guidance from management,

The Manager's Goal

Learning, says the psychologist, occurs when anexperience changes a person in some way. A man-ager's goal is to channel change in a specific direc-tion. When he seeks to do this through training,he must provide an attractive experience, designednot alone to improve skills and knowledge, but tostimulate feelings, to awaken attitudes, to promptthe beginnings of broadened new concepts towardrewarding personal gains.

Training is of value to the extent that an em-ployee accepts it, finds it to be a significant experi-ence, and is thereby changed.

Why Train?

Why does a manager seek change through train-ing? Common sense provides many of the answers.When an engineer first comes to Government, hemust learn the conventions used on his agency'sdrawings. When an improved device for treatingkidney dysfunction arrives at a hospital, doctors,nurses, and technicians must learn to use it. Econ-omists, no matter how experienced, must continu-ally study new theories on model construction.True, such employees can learn by themselves to dothe things required of them. But where manage-ment adds to the motivation to learn, developstraining plans, provides texts and other materials,

and answers questions as they arise, the learningtime is greatly reduced. Training accelerates learn-ing, At the same time, it lets employees share man-agement's viewpoint on the work at hand, whatshould be done, and where and when and how, tomake it most productive. Such insight into man-agement thinking helps prepare specialists who willeventually advance to management responsibilities.

When the Task Force surveyed agency practices, itfound that they train to:

Attract a better quality recruitGet work done betterPut meaning into workFacilitate optimum utilization of employeeabilitiesDevelop new skills, knowledges, and conceptsFoster employee underitanding of agency goalsand contributions to work improvementPrepare for more responsible workMake actions more consistent with policy andprocedureReduce unnecessary conflictOvercome complacency; foster excellenceImprove the quality of supervisionIncrease 1...aagerial effectivenessImprove agency administrationInstruct in new methods, procedures and tech-nology

They are all creditable reasons for investing intraining. Some are more significant than others.One is of particular contemporary consequence.

A Special Problem

Training "to instruct in new methods, proceduresand technology" is of dramatic current impact.Ours is an age of such conscious change, and somuch of it, that it makes the most exacting demandson people who must keep up with it. Professionaland technical employees and the executives whomust bring knowledgeable administration to theirfields are affected daily by change, indeed theythemselves are continuously creating it. The prob-lems they face ace provocatively focused in a reportby the National Commission on Technology, Auto-mation, and Economic Progress, which states that:

Half of what an engineer has learned todaywill be obsolete in 10 years;Half of what he will need to know 10 yearsfrom now is not available to him today;

80 percent of modern medical practice was dis-covered in the last 20 years;

Knowledge is now accumulating at such a rapidrate that it will double in the next 15 yews

Obviously, management-sponsored training foremployees involved with such change must be Mostknowledgeable, thoroughly planned, and preciselycarried out. Haphazard support for professional,administrative, and technical employee learning canbe only wasteful of valuable time and invaluableskill.

A Capital Investment

Training and education are capital investmentswhich contribute significantly to a nation's GrossNational Product. In one study, Edward F, Den-nison estimated that the improvement from 1929to 1957 in the quality of the labor force due to edu-cation contributed 23 percent of the total growth ofthe national product, whereas the increase in thecapital input contributed about 15 percent of totalgrowth.*

How Train?

Training is inherently a part of every manager'sjob. For example, how does a manager effectivelycommunicate to subordinates his agency's objectives,policies, and procedures? Telling, alone, is notenough. Managers need to provide experienceswhich activate the desired learningthat is, theymust train.

An internal revenue agent is not told how to audita corporation return. Effective management mo-tivates him to study corporate accounting practices,technical terms used in the industry, and tax courtdecisions. He works first with an experiencedauditor who can take over if it should becomenecessary.

Eventually, under a careful, management-planned program, he is trained in how to tacklenew and unusual situations in a wide variety of cor-porations. Gradually he develops the expertisewhich will enable him to take independent action in

* Dennison, Edward F. The Sources of EconomicGrowth in the United States and the Alternatives Beforeus. New York, Committee for Economic Development.1962: pp. 267-268.

13

ummalathamarmums...mialodataSb.......

such situations, no matter how unpredictable theymay be. In short, management seeks to build inhim knowledge, skills, and attitudes which willequip him to cope self-reliantly with any job-relatedcircumstances he may encounter. He is but oneexamplemany professional, administiative, andtechnical employees require considerable freedomfor independent action under ur foreseen conditions.Plained trainingcertainly not just tellingis themean by which managers can develop employeescompetent to act independently, yet attuned to workin reasonable coordination. Such training is amutual investment.

Taking Stock

Task Force members, from their coilmtive experi-ences, are convinced that training and educationare major factors in increasing employee pro-ductivity. Investment in planned, perceptive em-ployee development gives good returns, shared threeways. Government gets elevation of performanceand perspectives. Employees get status, satisfac-tion, and broadened career opportunities. Thepublic, whose taxes support the training andeducation, gets better service at reduced cost.

Government supplies money, space, equipment,materials, instructors, and time. The employeecontributes time, effort, self-evaluation, and some-times money. Employees and management willboth profit if both participate in determining train-ing needs and planning effective programs to fulfillthem.

Because training benefits groups and occupations,professional associations and employee organiza-tions should also be consulted in the planning stagesto elicit both their views and support.

Since training is indispensable, Governmentneeds to make certain that it invests wisely in train-ing and education and that it obtains as high areturn as possible.

14

Building Blocks

Such judicious investment requires a basic un-derstanding of training and its goals. Building onwhat we have said sr, ,liar, we offer these premises:

Self development !requires employee initiativeand persistenceLearning arises from experiences which changethe individual or the groupThe best learning occurs when supervisors de-velop work environment which encouragesemployees to seek it activelyTraining provides management-sponsored,goal-oriented learning experiencesWork itself provides a variety of experienceswhich managers can use for trainingTraining meets the organization's needs forchange

These are building blocks. When managers andemployees work together, they build. If they pullin opposite directions, they block.

Recommendations

The Task Force recommends :That heads of agencies create conditions for

professional, scientific, and administrative em-ployees where the need for self development isapparent, personal efforts are rewarded, studymaterials are readily accessible, and opportunitiesto use new knowledge, concepts and skills aremade available;

That Federal managers in their day-to-daywork relationships enable employees to realizethat their own immediate and long-range goalscan be compatibly integrated with agency opera-tional objectives and with long-range Governmentgoals;

That Federal managers take advantage ofthe variety of work and the flexibility of assign-ment to provide work experiences which willpromote growth, stimulate self development, andbring about improved public service.

Chapter Three

The Individual and the Organization

Work is purposeful activity. Training is pur-poseful activity which builds knowledge, skills, andattitudes, improves performance and advances anorganization toward its goals. Chapter two focusedprimarily on the nature of training, and its applica-tion to employees and managers as individuals.This chapter moves on to look at training as a meansof fitting unique individuals into integrated, pur-poseful organizations.

Here is an illustration of the reliance of an indi-vidual on his organization. When a Na-,--/ Depart-ment scientist after years of study discovered acause-and-effect relationship in the ,ield of physics,his agency gave him an award, his pinfessional as-sociates named the law after him, and stucterqs fromafar sought his advice. These acts paid tribute tothe creative genius of an individual.

The physicist received help in his long study frommany people in the same organization : a mathema-tician, several librarians, an optical specialist, aglass molder, two machinists, an electrician, a fileclerk. Each of them made an essential, if smallcontribution to the scientist's triumph. These actsdemonstrated the cooperative genius of an organ-ization.

Management's Responsibility

Managers must be concerned not only with train-ing which brings out the best in individuals, butalso with training that guides and directs individ-uals toward interrelating with each other in a work-ing group, toward better overall performance as ateam or a system. The Task Force study of Federalagencies revealed great variation in the effectivenesswith which they approach these different aspects oftraining. More sophisticated agencies, usually

15

those with large numbers of employees, spend con-siderable effort on training of individuals alone orin classes. Other agencies spend only sporadic ef-fort on training of individuals and little or no train-ing beyond that. Few agencies put much effort in-to training work groups, and even less on trainingemployees who are part of systems that cut acrossdivision or bureau lines.

This chapter, therefore, presents for the concernof Federal officials a few fundamentals on the train-ing for individuals, groups, and systems.

Motivation and Learning

People are amazingly adaptive. They can workin Arctic cold and tropical heat, in crowded citiesand lonely deserts, in noisy factories and quiet lab-oratories. On the other hand, it is a scientific factthat most people tend to resist change imposed onthem. Like rivers, they flow smoothly along oldcourses, but moving them to new channels requiresskilled effort.

A manager wants stability when employees areturning out quantities of high-quality work and flex-ibility when he wants the same employees to adaptto organizational, technological, or proceduralchanges. Training is a most important assist to amanager who would bring about both change fromthe old and stability in the new. Like a modernmachine which is so delicate that it can gently cracka peanut shell and so strong it can make steel flowthroughout a die, training is a remarkably flexibleinstrument. Sound training gets its delicate selec-tivity from managers and instructors and its form-.ing strength from the needs and desires of individ-uals and the building and conforming pressures ofgroups.

Individual Training

To the two-way interaction which is training, theindividual brings many factors:Intelligence Motivations and valuesExperience Biases and prejudicesKnowledge and skills Emotional balanceAmbition, perseverance Goals and objectivesPhysical capacity Relations with others

A manager ne eds a handle by which he can attractan employee to training experiences that will bringabout learning and, therefore, change. Motiva-tions, made up of needs and desires, offer one of themost useful handles to managers who would train.In the work situation, the most significant motiva-tions are probably the needs for:

Feeling importantSecuritySatisfaction

Employees respond to a wide variety of incentivesand these are compelling ones. Take for example,satisfaction. Employees get satisfaction from inter-acting with their fellow employees. From a super-visor's or manager's point of view, the desirablething is that employees get satisfaction out of inter-acting with him too. Normally, an employee getssuch satisfaction by producing good work that winsmanagement approval. Aware of this incentive,management can tie it to training and self devel-opment. Effectively motivated, an employee willcome to see such deevlopment as an attractivemeans of fulfilling his very human need for satis-faction.

A manager, then, may tap an employee's parti-cular needs and desires so that he will respond totraining experiences and make them his own. Asupervisor working face to face with one employeecan take into account both the skills and knowledgethe employee needs and the motivations which willcause him to accept the training experience andthereby to change. A manager or employee devel-opment officer who would train a work group oremployees in a system must use additional forcesto bring about change.

Group Training

Here the word "group" has a special interpreta-tion. It means a number of people who have inter-related enough to develop common attitudes. Acollection of 20 to 30 individuals in a classroom isnot such a group. A half dozen employees who

16

have worked with the same supervisor for monthsis such a group. They tend to stick together suf-ficiently to support or resist changes which a super-visor seeks to bring about.

Reports to us by Federal agencies and data, col-lected from progressive industries show that theprinciples of group training are becoming wellunderstood and well applied. From these andfrom writings of social scientists, it seems clear thatin cohesive, healthy groups a manager or instructorwill find factors such as:

Unified membership Facilitative attitudesfeelings Strong group structure

Common goals Effective communicationHigh standards patterns

Of course, there are also external factors whichaffect groupsfor example, their relations withother groups and with management, the complexi-ties of the agency's program, and organizationalcontrols.

A skilled supervisor, manager, or trainer whounderstands group processes may find it easier tochange a group than an individual. Groups tendto move in one direction. If a manager can traira group to a new, higher standard of performance,the leader-members of that group will bring the lag-gards along, using the strengths of facilitative at-titudes, common goals and shifts in personal rela-tionships.

System Training

When we speak of systems, we mean people whodevelop relationships that cut across work groups.Our Navy Department physicist who won fame op-erated in a system. When he was making mathe-matical calculations, for example, he called uponlibrarians to find previous formulas for him, clerksto tabulate data, technicians to set up equipmentand record the data, computer programers to trans-late it into computer language, computer tech-nicians to run the computer, and file clerks toarrange his data for ready reference. A systemoperates as part of a formal organization withinwhich informal job relationships develop amongco-workers. Such a structure permitted the physi-cist not only to call upon the people he needed forwork in his behalf but also to have available theequipment, the physical objects he requiredcom-puter, forms, books, desks, space, and the like. Justas training is needed to get a work group to coordi-nate their activities, training is essential to get such

a system, made up of employees in different workgroups, to coordinate their activities,

The Task Force found but a small amount ofwriting about system training. One mail-or(ierhouse prepares for the Christmas season's specialprocedures ahead of time by routing dummy ordersthrough the system and having employees direct,wrap, address, and account Inn- dummy packages.They report that this training produces much im-p.oved performance when the real orders comeflooding in. In another report, training of thoseinvolved in a system which plots airplane move-ments and alerts defense installations brought start-ling increases in productivityup to 300 percent.

The Task Force suggests that Government moveaggressively into system training.

Some Conclusions

It is appropriate here to sum up and draw a fewconclusions :

Employees change, but normally change slowlyEmployees tend to resist change imposed onthemMotivation offers one of the best levers to over-come resistance of individuals to changeBecause the skills and knowledge needed 'varywith the individual and because the motiva-tions to accept training also vary with the in-dividual, training experiences must be designedto fit each individualSkilled managers and instructors find that oncegroups accept elm nge, the individuals in thcaltend to accept the change alsoAlthough relatively little is available on systemtraining, Government should explore this area

Recommendations

The need to improve and advance training meth-odology was supported by data obtained throughquestionnaires and interviews. The Task Forcerecommends :

That each agency head make sure that hissupervisors and managers understand how tomotivate individual learning;

That agency heads encourage experimentationin training techniques, including the develop-ment of group training methods, system training,programmed learning and other innovations.The Task Force further suggests that agency

heads set these goals for their executives, managersand supervisors:

17

To develop each employee's potential to thefullestTo bring about effective teamwork both inwork groups and in systems that cut across workgroupsTo integrate individuals, groups, and systemsinto a cohesive organizationTo ready individuals, groups and systems forchangeTo foster sound democratic values among em-ployees, supervisors, managers and executivesTo make Government activities means to ends,not ends in themselvesTo improve the public service

Classroom Training

The recommendations above apply to training inthe work environment : a supervisor training oneemployee, a supervisor or manager training a group,a manager training employees in a system. How-ever, the discussion preceding them applies also toclassroom training.

If, say, 30 individuals are brought into a class-room, and they remain individuals, then the teacheris obliged to instill 1,0 separate degrees of skills andknowledges, presented in some heroic way that willdivine and stimulate 30 different sets of human mo-tivation. In some areas, where instruction is ex-cellent, it can be done, even done well, if greatcare is taken. In most areas, however, it is ex-tremely difficult.

Here is where group teaching methods can bevery effective. A skilled instructor, by promotinginteraction and competition among his students, byusing the many psychological tools of group learn-ing, can produce dynamic results. Challenged bythis kind of teaching, individuals tend to formthemselves into real groups, reinforcing each otherbecause their motives and needs are met throughinteraction, becoming cohesive, absorbing faster,growing more quickly. Some Federal training pro-grams using these methods are successfully evolvingtrainees into cohesive groups, and report goodresults.

The Task Force suggests that employee develop-ment officers and instructors not familiar with thisprinciple should look into group learning methods.

AdministrationUp to this point in this chapter, training has been

discussed as relationships between individuals,

groups of employees, and persons in systems. Theserelationships can be facilitated if they are admin-isteredthat is, based on continuing efforts, con-sciously planned to produce specified results. Train-ing administration is well understood but not alwayswell executed.

Orientation

Data from Federal agencies show that orienta-tion training is given to practically all professional,administrative, and technical employees, However,it is apparent that the quality varies.

Social scientists and observant executives say thatwhat happens to a new employee in the first feWweeks is important. When a person goes to a newjob, especially a young person, he is more open toattitude-building suggestions and instruction in waysof doing work than he is likely to be later. Peopletend to resist change but orientation catches thembefore they have built habits, techniques, and atti-tudes toward the work and the agency. They arelike new computers ready and waiting to be fedwith data,

An analysis of agencies that pay special attentionto the orientation of professional, administrativeand technical employees leads the Task Force toconclude that agency managers, would do well to :

Assign new employees to able supervisors whowill take time to orient and guide themHelp new employees visualize different stepsin their careers and identify how self develop-ment will propel them toward more responsi-ble assignmentsMake clear to them the special obligations ofFederal employees to the publicStart them building an understanding of theiroccupation, their agency, and other 'Organiza-tions they will deal with in their careersStimulate interest in the problems of leadershipand administration and in agency programs formanagement developmentBuild in those whose careers will involve travelor geographical movement between Washing-ton, the field, even overseas, an acceptance ofthe necessity for mobility

Recommendation

The Task Force recommends :That agency heads review their orientation

programs to make certain that they motivate pro-fessional, administrative and technical employees

18

to early habits of self development and foster at-titudes appropriate to those in public service.

On-the-Job Training

More emphasis is now being placed in manyFederal agencies on formal training and educationaway from the job than on supervisor-managertraining at the work site. The Task Force suggeststhat agencies avoid an imbalance which may dis-tract the attention of managers, supervisors, andemployee development staff from the total em-ployee career development needs.

On-the-job training in the daily work environ-ment is still the most important and effective meansof developing professional, administrative and tech-nical employees. Formal training away from thejob cannot substitute for it. On the contrary, re-newed emphasis should be placed on this time-honored method for employee development.

The Task Force suggests that heads of agenciesand major sub-units within agencies should reviewpractices in their organizations to ensure that em-ployee development is an integral part of the job atall levels of management and supervision.

The Task Force also suggests that agencies selectfor assignment to supervisory and managerial postspeople with the ability to create a climate of growth,stimulate self development, and provide neededtraining on the job.

Recommendations

To provide needed administration of this effort,the Task Force recommends :

That each agency head establish systems formonitoring and evaluating on-the-job training;

That each agency head review and improvepractices used by managers and supervisors foron-the-job training and development;

That agency heads provide in performanceappraisal systems for review and feedback tosupervisors and managers on their staff develop-ment activities.

Career Systems

Once a professional, administrative or technicalemployee is embarked well on his career, he, morethan most other Government employees, facesfrequent change. He will be better prepared for itand will accept it more readily if agency officialshave a conscious, planned, career system. Some

Federal agencies have such systems, but many em-ployees are not covered by them. The conclu-sion, empirically derived, is that employees in soundcareer systems are more concerned with developingthemselves in ways that will be of value to theiragency than employees who lack such guidance.The mark of a professional is the capacity for selfdevelopment. Career systems support and extendthe professional's natural efforts to grow.

Recommendation

The Task Force recommends :That agency heads direct the establishment

of and guide the operation of career systems forthe advancement, training, and education of pro-fessional, administrative, and technical employees.

Career systems will be explored in more detailin chapter nine.

Policy-Setting for Training

The Task Force sees training and educationalprograms as integral parts of personnel manage-ment, the basic objectives of which are :

To obtain, develop, and retain an efficient, pro-ductive workforceTo provide a stimulating environment whichwill generate leadership, promote productivity,encourage imagination and initiative, and pro-vide for wise and decisive handling of publicaffairsTo develop a pride in individual and groupachievement and recognize outstanding con-tributionsTo assure intelligent utilization, conservationand development of the workforce*

All of these are pertinent to policysetting fortraining and educations The last onemanpowerutilizationrisks being overlooked unless managersand executives provide leadership to implement it.

Training Opportunities for Women

Task Force studies suggest that special attentionneeds to be paid to opening more training oppor-tunities to women. They show, for example, thatwomen are under-represented in Government-sup-ported, full-time, and residential university courses.

A great many women can be interested in com-bining family life with a Government career. Somecan be interested in returning to employment afterchildren have left home. Training and education

*Adapted from the Federal Personnel Manual.

19

can be used to heighten this interest, and to opennew avenues of advancement and service.

Training for Disadvantaged Employees

Although minority groups were well-representedin Government-sponsored courses, Task Forcestudies point to the need for greater use of trainingand education to make sound utilization of employ-ees who were disadvantaged through inadequateeducation or limited employment opportunities.The Civil Service Commission has pointed the wayto achieve this through its bulletins on the MUSTprogram (Maximum Utilization ofSkills and Train-ing) .

Management's Responsibility

Of course, providing training opportunities alonewill not insure good utilization practices. Man-agers must create conditions which motivate wom-en, members of minority groups, and persons withdisadvantaged backgrounds to seek out and accepttraining opportunities, and more importantly to de-velop themselves continuously. Managers must ad-vance persons within careers regardless of race,creed, color, nationality, or sex.

Recommendations

The Task Force recommends :That agency heads make sure that career ad-

vancement training and educational opportuni-ties are equitably open to qualified employees re-gardless of race, creed, color, nationality, or sex;

That agency heads support the Civil ServiceCommission's MUST program by opening moretraining opportunities to employees who havebeen disadvantaged economically and educa-tionally.

Need for Staff Assistance

The recommendations presented in chapters twoand three can be best carried out by line officersand supervisors. They do, however, pose sometechnical problems in administration which call forcompetent staff advice and assistance. The TaskForce, therefore, recommends

That the Civil Service Commission providetechnical assistance to agencies in improving theirtraining and educational programs and systemsfor career advancement.To implement this recommendation, the Task

Force visualizes the Commission analyzing and re-

porting data about best practices in orientation, on-the-job training, career systems and manpowerutilization, consulting with agencies on the admin-istration of their training programs, exploring newtechniques such as group training, system training,programmed learning, and the use of television;and recommending steps to better training and edu-cation.

20

The rest of this Report win examine the overallneed for professional, administrative, and technicalemployees, the training of employees for adminis-tration, the training of employees who remain spe-cia:ists, the use of the resources of Government andeducational institutions for training, and theplanning and operating of Federal training andeducation.

Chapter Four

A Forecast

Strong tides of change erode old Government pro-grams and build new ones. As they rise and fallthey bring waves of reorganizations, transformedmethods, new jobs, and a demand for quite differenttraining and education, especially for professional,administrative, and technical employees. Of thehost of factors affecting the future of training andeducation, three seem most importantchangesin Government programs, in occupational require-ments, and in technology.

Changes In Government Programs

The Bureau of Labor Statistics, from Governmentdata and projections, concludes that major changesin Federal programs are probable from now to 1975.Those that seem likely to expand rapidly are :

EducationHousingSocial securityCommunity

development

Anti-poverty programsNatural resourcesWater and air pollutionCommerce and

transportation

Programs likely to expand slowly are:

Internationa, affairs Veterans affairsSpace

Agricultural programs may decline.The assumptions adopted by the Bureau of

Labor Statistics in making the above projections andothers in this chapter are :

(1) U.S. population will increase 16 percent in10 years, from 195 to 225 million.

(2) The total labor force will increase 20 percentin that time, from 78.4 to 94.1 million.

(3) Peacetime conditions will prevail by 1975.Armed Forces will be about 2.7 million, thesame as in 1964.

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(4) The unemployment rate will be 3 percent.(5) Our gross national product will increase by

half to over $1 trillion ( in 1965 dollars) .

( 6) The Federal Government will be activelyengaged in a cooperative approach to avariety of domestic problems, such as waterand air pollution. Expenditures will riseto $200 billion (in 1954 dollars) .

Changes in Occupational Requirements

From this data, the Bureau of Labor Statisticsforecasts an increase in Federal Government em-ployment of about 11 percent by 1975. However, itpredicts that there will be a considerably greater in-crease in the number of professional, administrative,and technical employees who now number about760,000 (data from agency reports to the TaskForce) . Applying Bureau of Labor Statistics pro-jections to this figure :

Professional, administrative, and technicaloccupations

Date Positions Recruitingneeds

1966 760,0001966-75: New positions 225,000 225,0001966-75: Replacement of turn-

over 675,000

Total 985,000, 900,000Change, percent 30

Greatest increases in new jobs are expected bythe Bureau of Labor Statistics to occur in occupa-tions such as these :

Selected occupations

Occupation1965

employ-ment

Projected1975

require-ments 1

Percentincrease1966-75

Biological scientists 12, 700 16, 500 30Chemists 7, 700 10, 400 36Computer occupations . . . 12, 400 21, 600 74Employee development

specialists 1, 600 2, 300 41Engineers 75, 300 104, 300 39Lawyers . 10, 900 14, 600 35Physicists 5, 100 7, 300 44Psychologists 1, 800 2, 800 53Social service workers 2, 000 3, 500 73Statisticians 2, 300 3, 100 34

1 Figures do not include replacements for turnover.

Other occupational needs likely to increase sig-nificantly are for physicians, urban planners, andregional planners.

Changes in Technology

Technology, the precocious giant whose growthspurted in the 1940's, will expand toward ever moreamazing gains. The introduction and use of newproducts, machines, methods, and materials willrequire continuing modification of existing Federaltraining programs and institution of new ones..Training will continue to be needed to minimizedisrupting effects on individual workers when jobsare eliminated or old skills become obsolete.

Supervisors, managers, and executives must con-tinually acquire new knowledge, and develop newskills, not only in order to be effective in creatingthe methods, procedures, tools, and equipment toapply to the new technology, but also in order tocreate the leadership, organizations, and institutionsthat the new technology inevitably demands.

Illustrating the dramatic changes in technologywhich will place heavy demands on training andeducational systems are four fields: computers,communications, energy, and health.

Computers

Expected innovations in computer technology willbring about the need for new training and educa-tion for professional, administrative, and technicalemployees in the coming decade. Electronic com-puters are gaining in speed, capacity, and versatility.

22

Optical scanning devices are being improved andwill be more widely used, thereby eliminatingmanual transcription. The establishment of cen-tral computers'omputers which can be used by separate officesin different locations will provide increased servicesto scientists, engineers, and other professionals, andwill change their work methods. Engineers, math-ematicians, auditors, accountants, economists, andmanagers in general will need to learn computerlanguages, such as FORTRAN, to do their jobs.

Communications

New communciations systems are creating newGovernment services and operations. Computersare being linked to provide improved police net-works, improved medical diagnostic systems, a newpatent search system, a new nationwide employ-ment service interchange. The Defense Depart-ment's already vast international network will be-come more complex as it moves to satellite trans-mission.

New communications systems are likely to havesignificant impact on Federal regulatory agencies.Community antenna systems for television, informa-tion utilities that store credit data, phone links forpaying bills, and purchasing by wire all seem likelyto drastically alter business and Governmentrelationships.

Professional, administrative, and technical em-ployees in many different occupations will needtraining as a result of these developments.

Energy

Changes in methods of energy production willpresent professional, administrative, and technicalemployees with new problems of research, construc-tion, and regulation. New, large-scale nuclearelectric powerplants are being planned. Nuclearexplosion technology for peaceful uses is beingpressed. Atomic energy is already being used forthe propulsion of ships and is being examined foruse in space vehicles.

Regulatory agencies are more and more con-cerned with national power grids, hydroelectricpower generation, gas turbines for generation ofelectric power, and the use of underwater robots fordigging of oil wells. Many employees will needtraining to update them in these rapidly changingmethods.

Health

Trends in the field of health seem certain to con-tinue to add to the numbers of highly trained medi-cal, scientific, and other specialists needed. Com-puters and automated laboratory equipment willlikely increase the quantity and quality of the workdone, and will require exacting training for newskills among professional, administrative, andtechnical employees.

Important advances are being. made in surgicaltechniques, use of organ transplants, and artificialorgans. Hospital supplies and equipment arerapidly changing. The impact of these innovationswill certainly affect training of medleal personnel atmany, levels.

Help from Social Science

Much of this training must, by the nature of theneeds, be technological. Its implementation can befacilitated through recent findings from social sci-ence. Agency heads and managers in all agencies,especially those installing new programs or shiftingto new goals, should have appropriate staff keep intouch with social science research into leadership,management, and administration, and have themtranslate useful discoveries into training for super-visors, managers, and executives. While its rate ofchange is slower than that of the physical sciencesand engineering, social science knowledge is build-ing up rapidly. Agency officials needing new

23

methods for administering new and more complexprograms should look into this source of help.

Plan and Act

The projections by the Bureau of Labor Statisticsare flashing warning signals. Planning is needed.Action is needed. Beginning now, and steadily fromthis day forward. The Task Force urges agencyofficials to review projections such as those of theCivil Service Commission and the Bureau of LaborStatistics to discover potential problems. It urgesthem to make their own manpower projections topinpoint what their future training needs are likelyto be.

The rest of this P eport outlines steps which theTask Force members recommend as means of meet-ing the test of the future efficiently and economically,and at the same time providing ever better publicservice. What is done today to anticipate Federaltraining and education needs will be an investmentproducing high returns tomorrow.

Recommendation

The Task Force recommends:That executives and managers provide systems

which will anticipate technological changes andplan for needed new or revised training andeducation.

Discussion of and recommendations on manpowerplanning will be found in chapter nine.

Chapter Five

Development for Administration

This year, the employee turnover rate in the Fed-eral Government is close to 2 percent a month.Thus, in addition to dealing with technological andprogram changes predicted by the Bureau of LaborStatistics, Federal executives, managers, and super-visors are having to deal with a stream of new peopleand suffer the loss of many experienced employees.In view of such variance, their organizations have asurprising stability.

This rises in part from the personalities andcharacteristics of the people who make up ourorganizations. Employees in the United States areoutstanding. They are well educated, full of initia-tive, and work hard. However, they can and doreact to proposed changes that displease them bymoving to other jobs. They make the job of theirbosses harder by resenting inadequacies in super-vision and are even more critical of management,particularly when changes are proposed.

Federal managers, like those in business, facethen a difficult situation : they must adapt their pro-grams to changing situations, programs, and tech-nology and they are coping with organizations whichtend to resist change.

Preparation for Management

Some Federal managers and executives have anatural flair for keeping people on their toes, butmost need training and development. This is logi-cal. These people commonly have specialized edu-cation. They come to Government with degrees insuch fields as engineering, medicine, law, physics,accounting, or economics. Such courses leave littleor no time for study of human relations, leadership,and management. Too often, the demands of suchdisciplines discourage study in depth even of politi-cal science and history.

24

The professional and the scientist prefer supervi-sors and managers who come from their own fields.The Task Force members agree that if such assign-ments are to be effectively made, the organizationmust create a climate which stimulates specialist-leaders to acquire through reading, observation, orformal training the background knowledge and con-cepts they need for effectual performance of theiradministrative functions.

Even though management is an art, it needs con-ceptual bases. An artist with talent develops itthrough studycomposition, design, color, brushtechniques. A professional with talent for admin-istration can develop it through study of public ad-ministration, management, human relations, andleadership. Study alone will not make a profes-sional an able manager. It is necessary to put po-tential and study together, put principles into prac-tice, and provide inputs of guidance from a reliable,trustworthy source on the quality of performance.

If professionals and scientists do not wish to pre-pare themselves adequately for administration, theymay need to give up their preference for leaderschosen from their own fields. Physicians have, insome cases, decided to turn over the running ofhospitals to lay administrators rather than taketime themselves to learn all that is needed to man-age such institutions.

Recommendation

The Task Force recommends :That agency heads see to it that those selected

to become managers and executives possess knowl-edge, abilities, and skills required to integratetheir organizations into the agency and Govern-ment, to direct and carry out assigned missions,and maintain sustained high quality and efficientperformance.

From a President's Viewpoint

Agencies reported to the Task Force that aboutthree employees in a thousand are career execu-tives. From a President's point of view, these ex-ecutives should provide a continuity of operationgto Government. His administration's policies, in-terpreted and guided by political appointees, needmen well anchored in the organization who cantranslate these policies into efficient, well-run op-erations which will meet clientele or service needs.

Career executives should weld together the manydifferent parts of Government so that reasonableconsistency is achieved and the overall administra-tion flavor is maintained. They should assess ac-curately the probable results of new policies andprograms in terms of public responses, politicalreactions, and general effectiveness. They shouldweigh cost benefits objectively, and recommendpriorities where programs compete.

Career executives should offer choices in the em-phases to be given programs, keeping each choiceconsistent with the President's philosophy on Gov-ernment goals.

The Military

Senior military officers are particularly well pre-pared by education and training to provide what aPresident wants and needs. The career system inthe Army produces generals with broad knowledgeof international affairs, global strategy, strengthsof friendly and hostile nations, national resources,mobilization of our economy in support of militaryoperations, and use of the military in defensive op-erations. Before making a proposal to overcomethe lack of such training for civilians it is desirableto look at career executives from an agency head'spoint of view.

From an Agency Head's Viewpoint

The Secretary of Agriculture, for example, su-pervises programs as diverse as price support andproduction stabilization, conservation of soil andforests, crop insurance, rural community develop-ment, rural electrification, consumer protection,marketing, agricultural economics, extension educa-tional programs, and many, many more. He looksfor career executives who can use his agency's vastteam of experts to create new solutions to old prob-lems; who can guide the consultants, inspectors,technicians, and hundreds of other specialists to bet-

25

ter public service; who can operate an intelligencesystem to alert him to impending new problems;who can deal with the many clientele groupsreasonably and productively; who can initiate newprograms with effective use of the department's em-ployees and effective participation of citizengroups. Other Department heads also seek com-petent career executives capable of carrying outtheir intricate duties with finesse and vision.

When we look from the top down, we see an ap-palling demand on career executives for skill andknowledge and abilities. A most competent in-dividual could spend a lifetime preparing for suchassignment. At present, few civilian agencies planand carry out sound executive development pro-grams that parallel those of the military and theForeign Service of the United States. The TaskForce finds this to be a serious deficiency.

Recommendations

The Task Force recommends a series of steps tocorrect this situation :

That the President direct the heads of agen-cies to take steps which will develop in careerexecutives broad viewpoints as free as possiblefrom the provincialism of occupation and spe-cialization;

That the President direct agency heads to de-velop programs which will encourage people ofoutstanding potential to prepare themselves inearly stages of their careers for possible advance-ment too top career levels and to supplement self-development with appropriate training andeducation;

That the President direct agency heads to de-velop programs of training and education foroutstanding specialist managers which willbroaden their knowledges, sharpen their skills,and improve their potential for advancement toexecutive posts;

That the President direct each agency head todesignate a high-ranking official to activate anexecutive development program and provide re-sources to implement it.

Executive Assignment System

The President in Executive Order 11315, issuedin November 1966, created an Executive Assign-ment System and directed the Civil Service Com-mission to recommend a program for the develop-ment of career executives. The Task Force whole-

heartedly supports this new system for it provides anaffirmative framework on which improved execu-tive training may now be erected.

The major elements in this new system are :Periodic review by agency heads with the CivilService Commission of their plans for staffingupper level positionsProvision of a broader base for search for ca-reer executives, both in Government and out-sideAccommodation of appointment procedures toemergency and short-term needsIncreased utilization of executive talent on aGovernment-wide basisIncreased recognition and opportunity for per-sonal development and challenging assign-ments

The Civil Service Commission is responsible to thePresident for effective implementation and adminis-tration of the Executive Assignment System.

Broadening Assignments

The Executive Order creating the Executive As-signment System directs the Civil Service Commis-sion to consult with agencies and establish specificqualification standards for assignment to jobs in thenew system. Standards must, of course, be realistic;that is, they must be designed to sort out the bestpeople from among those available, and rank them.But standards are not static. They can be raised.Government needs to provide assignments, experi-ences, training, and education which will add to thequalifications and improve the performances in ex-ecutive ranks. Individual agencies can do much toelevate sights, but a coordinated, Government-wideeffort would certainly be more effective.

Recommendations

The Task Force recommends :That the President direct the Civil Service

Commission in consultation with agencies to iden-tify for developmental purposes the knowledgeand skills needed by career executives to raiseperformance levels;

That he direct the Civil Service Commission inconsultation with agencies to open assignments tocareer executives, short or long term, in Govern-ment agencies other than their own, or to train-ing assignments outside Government, which pro-vide experiences that will supplement agency ef-forts to develop broad viewpoints.

26

Residential Training for ExecutivesThe central purpose of a residential training pro-

gram for executives should be to provide continuityand responsiveness in Government operations, andto insure that those near the top are identified withthe Government as a whole in the pursuit of na-tional goals. In doing this the curriculum shouldbe designed to :

Foster a sense of common purpose, increasemutual understanding, and stimulate ap-proaches to common problems among top-levelcareer executives;Review the interrelationships of Government,business, education, and other institutions toincrease versatility in achieving desirable na-tional goals;Provide top-level career executives opportuni-ties to explore current aspects of governmentalprocess with an emphasis on emerging inter-governmental configurations;Widen knowledge of world affairs and .exploremethods for improving the administration ofoverseas programs;Afford top-level career executives with oppor-tunities to further their understanding aboutthe total governmental environment as it af-fects their work and decisions;Provide a forum for the discussion of govern-mental programs on an interagency basis fortop careerists having special but related' inter-ests; andFoster executive attitudes which place highvalue on inventiveness, consideration of awidening range of administrative alternatives,and significant risk-taking to achieve difficultpublic objectives.

The Civil Service Commission has prepared aproposal for the establishment of a residential,career executive training institution which was re-viewed by the Task Force and endorsed by it asmeeting these criteria.

When the Federal residential training institutionfor career executives is created, agencies should ( 1)continue to provide specialized supervisory andmanagement training which would prepare futureexecutives for the advanced curriculum; and (2)continue to send managers to long-term, universityeducational programs which would broaden spe-cialists' understanding of Government and society.Recommendations

The Task Force recommends:That the President direct the Civil Service

Commission in consultation with agencies to es-

tablish a program of intensive, full-time resi-dential training for career executives which will:

(1) Enable them better to supply continuityand responsiveness in Government operations;

(2) Provide them with concepts and knowl-edge that they can use toward further self devel-

opment; and(3) Enable them to render more valuable serv-

ice to the agency heads, the President, and the

public.That the President direct the heads of agencies

to support the full-time resident,!11 training forcareer executives when it is established by theCommission..

Noncareer Assignments

The new Executive Assignment System providesfor the exception of a position from the proceduresrequired for making career executive assignmentsand filling it by a noncareer executive assignmentwhen there is a need for filling the position by aperson who will:

Be advocating administration programs andsupporting their controversial aspectsBe participating significantly in determiningmajor political policiesBe serving as personal assistant to or adviserof a presidential appointee or other key politicalfigure

Many officials having noncareer executive assign-ments fill very specialized positions. They needextensive professional training and experience, abil-ity to develop policy and programs, and a sure handon. the levers' by which their. programs can be en-thusiastically and forcefully moved.

Presidents and heads of agencies have been mov-ing some career men and women into these non-career posts. The Task Force suggests that whenagency heads have identified a career employee withpotential for noncareer assignment, they give himassignments, experiences, and training which willprepare him for effective performance in a verydifferent role.

An Executive's Subordinates

This Report emphasizes the value of on-the-jobtraining by a competent leader. Senior career ex-ecutives must keep in mind their responsibility intheir day-to-day contacts for developing their im-

264-239 0 - 67 - 3 27

mediate subordinates, from whom must come someday their replacements. Every phone call, everymeeting, every returned file provides experiences forsubordinates which help to train them. The pointis that these experiences should be used construc-tively to foster growth, stimulate self development,and deepen understanding.

Managers

Career executives are supported most closely bymen and women, 26 out of each 1,000 employees,who have managerial assignments. Some headlarge organizations and are backed up by personnel,budget, supply, and other staff officers. Othershead organizations having several supervisors, ahandful of employees, and no full-time staff officers.Reports collected from agencies show that only one-half of Federal managers have been sent to formaltraining and further that widely different ap-proaChes are ',aken in the training of these importantpeople. The Task Force found agencies sendingmanagers to courses more properly suited to super-visors, and vice versa,

Managers have functions different from those oftheir executive bosses, different from those of thesupervisors who report to them. It is not possibleto draw a firm line between managers and execu-tives, but there are some distinctions. Managersare more concerned with operations. They makemore specific use of their knowledge of economics,engineering, accounting, or other specialization.They stand closer to employees who do the work,yet remain an integral Tart of the agency manage-ment team.

When the work of managers is compared withthat of supervisors, there are sharper distinctions.A manager needs to be a good supervisor, but he ismore than just a supervisor. Managers, like su-pervisors, plan, but on a broader scale; interpretpolicy, but more authoritatively; represent theirmore numerous subordinates to top management,deal more importantly with employee organizations,ar d bargain with their peers in matters of greaterimport. On the task side, we observe that man-agers almost always supervise more diverse tasks,more complex workflows, and a greater variety ofoccupational groups than do supervisors.

The differences between managers and execu-tives and managers and supervisors are important.This leads us to conclude that agencies should pro-vide training and education to fit their special needs

and not lump them into programs for executivesor supervisors.

Recommendations

From this analysis, we have set some targets forthe training and education of managers. The TaskForce recommends:

That agency heads place on executives the re-sponsibility for the training and education ofmanagers, and that a system be established formonitoring the effectiveness with which this isdone on the job and in formal courses;

That agency heads create effective programswhich enlarge each manager's depth of under-standing of the professional, scientific, or tech-nical fields under his supervision;

That agency heads increase each manager'sskill in the techniques of management and theprocesses of administration; extend his effective-ness in dealing with Federal employee organiza-tions under Executive Order 10988; develop hiscapacity for efficient use of resources; broadenhis understanding of agency and Governmentmissions; and sharpen his ability to relate his as-signment to national goals.

Specialists Into Managers

Employees who move into management fromprofessional, scientific, or technical positions shouldbe carefully evaluated to determine . their weak-nesses and strengths and then counseled on howthey can best overcome the former and best use thelatter. Depending on need, such employees shouldtake supervisory training and attend universitycourses for horizon-stretching. Most managersshould take agency-conducted courses which willexpand their knowledge of agency mission, policies,management style, and procedures. Those withpotential for advancement should be sent to oneof the Civil Service Commission's Executive Semi-nar Centers, both for the course content and in orderto share knowledge and experiences with employeesfrom other agencies.

On-the-Job Development

Wherever possible, new managers should beplaced initially under executives who have the ca-pacity to motivate, stimulate, and guide theirbroadening and deepening through work assign-ments and self development. The agency should

28

make periodicals and books on management easilyaccessible to all managers. Whenever possible,special assignments should be made, not only to getneeded work done, but also to test their mettle.Whenever possible, men should serve under differ-ent bosses in order to see firsthand the effects of themany styles of leadership. Such rotation is desira-ble not only within one agency; the Task Force sug-gests that exchanges be arranged among agencies,including the staff agenciesBureau of the Budget,Civil Service Commission, General Accounting Of-fice, and General Services Administration.

Supervisors

Agencies reported that about 88 employees outof each 1,000 are supervisors. About one supervisorin 15 was new to his job in the past year. The Gov-ernment has many supervisors and it has a sizableturnover among them.

Social scientists report that a manager looks upona supervisor as the man or woman who leads a groupto produce a high quantity of high quality work, whogets them to observe agency policies and procedures,and who controls assignments, supplies, Apendi-tures, equipment, and space. From the point ofview of the employee, a supervisor is a member ofthe group who protects them from arbitrary man-agement decisions and rules, who helps make workinteresting, who is responsible for bringing into thegroup new and acceptable associates, who makessure that working conditions are pleasant, and whowill protect the employee's job, his rights, and hisstatus. Employees commonly expect their super-visors to be skilled in a specialtyaccountants ex-pect their supervisors to be skilled in solving dif-ficult accounting problems, computer techniciansexpect their supervisors to be masters of both work-flow and equipment, and engineers expect theirbosses to be more than handbook technicians.

Truly, the supervisor is the man in the middleresponsible both to management and to his workgroup.

Agency targets for supervisory training should, beKnowledge:

OccupationalOrganizational

Skills:AnalyticalTechnicalPerformance of workHuman relations and leadership

ConceptualAdministrative

Reports to the Task Force show :Three out of four supervisors in Washingtonhave participated in formal trainingIn some small field activities, little, or no formaltraining is provided supervisorsMost agencies lack systems for monitoring on-the-job training of supervisors by theirmanagers

The Task Force has concluded that too little on-the-job training is provided supervisors by managersbusy with operating problems.

Recommendations

The Task Force recommends :That agency heads make certain that managers

provide much more on-the-job training andguidance of supervisors than they now do;

That agency heads make certain that develop-mental opportunities, training, and education areavailable to professional, administrative, andtechnical employees who work at remote locations,in small groups or alone.

After an individual has become a supervisor hismanager should help him grow and become more ef-fective in his job. The manager should encouragehim to discuss human relations and other problemsthat arise. As many supervisors avoid such discus-sions, managers must therefore create relationshipswhich invite shared problem solving and stimulateself development.

As the supervisor gains experience, an agencyshould provide opportunities for formal training inthe skills and knowledge he needs.

Pre-supervisory Training

Much of the knowledge and some of the skillsneeded by supervisors can and should be obtainedbefore an employee becomes a leader of a workgroup. Reports to the Task Force show that fewagencies prepare employees with potential prior toassignment to leadership posts.

The purpose of such training should be thebuilding of concepts of leadership, group behavior,diagnosis of human relations problems, administra-tive processes, and personnel systems. With solidpreparation, a new supervisor should be able to de-tect his mistakes more surely and take remedialaction more promptly. He can become a leadermore surely and more quickly if he has a sound

29

conceptual framework on which to hang hisexperiences.

Recommendation

The Task Force recommends :That agency heads give employees with po-

tential preparatory assignments, experiences, andtraining before being placed in leadership posts.

Specialist-Leaders

As stated earlier in this chapter, most Federalexecutives, managers, and supervisors have trainingand experience as specialists. The Task Force wasnot surprised, therefore, to learn that some manag-ers and supervisors have reputations for being farmore con :erned with tasks, with the jobs at hand,than with people and administrative processes.

Take a typical case : A physicist comes fromgraduate school to Government. He is full of hissubject. It is the most important thing in the worldto him. Assigned to a laboratory, he plunges intohis work, enjoying excellent equipment, and fasci-nated by the limitless opportunities to learn morephysics and accomplish great things. Maybe hespends five or more years probing atomic structure.He does learn. He has accomplished good, if notyet great things. He has broadened his base, wid-ened his scope. It is time he took his place on theleadership ladder. Invited to move up, he is ofcourse pleased. But the man has become so ab-sorbed by his work, so committed to it, that he maywell be resistant to new responsibilities as intrusionson his specialty.

Dedication like this is seen every day in Govern-ment. It is at once commendable and frustrating.Certainly it confirms the recommendation, for earlytraining of professional, scientific, and technicalpeople toward management goals, their orientationfrom the very beginning to the realization that theyare part of an organization made up of humanbeings who have a common aim.

The Organization

The Task Force suggests :That most specialists now work for organiza-tions because these entities facilitate achieve-ment of their goals, provide them security, andsupply more financial support, better equippedlaboratories, and better-trained technicians.That only large organizations can now providethe means for carrying out the work of profes-

sionals whose projects are complex, demand-ing, and far reaching in effect.

Professional, scientific, and technical talent inGovernment can and needs to be amplified in anatmosphere of administrative process and organi-zational structure, This concept has guided theTask Force in making its recommendations in chap-ter six : Training for Specialization.

Conclusion

After studying the experience of industry andGovernment, the Task Force has come to a conclu-sion. Government has a need for an organizationalsystem which would steadily search out employeeswith potential for administration and provide thespecific training and education essential to readythem realistically for each stage of their advance-ment. Such a system would eliminate much of

what is haphazard and deficient today and give toGovernment a better prepared, more orderly flowof career advancement, Chapter nine will providesuggestions on how this can be done,

Recommendations

The Task Force recommends:That the Civil Service Commission provide

technical assistance to agencies on developing su-pervisors, managers, and executives on the joband of;

That the Civil Service Commission counselheads of agencies and top-level executives asneeded to improve development, training, andeducation for administration; and

That the Civil Service Commission report tothe President on the success with which agenciesmaintain career advancement systems.

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Chapter Six

Development for Specialization

Professionals, scientists, and technicians, whosefathers drank from a leisurely fountain of knowl-edge, seek today to sample a torrent that pours outwith the intensity of an open, high-pressure firehydrant. No one man can have today a catholicknowledge of science. Few can keep up with thepublications in even one field. The situation com-mands more and more specialization. This, in turn,calls for more effective methods of distilling wisdom,accelerating learning, and constantly improvingquality. These, then, are overall goals of trainingfor specialization.

The Task Force urges agency heads to make surethat executives and managers understand the pre-cious necessity of specialist training to the continuityof their programs.

Diversity in the Professions and Science

Reports from Federal agencies show an amazingdiversity of professional, scientific, and technicaloccupations. In the professions are found doctors,lawyers, accountants, engineers, and a host ofothers. In the sciences, to name but a few, arephysicists, chemists, soil scientists, psychologists,biologists, and oceanographers. Many of thesepeople do the kind of work you would expect themto dodoctors treat the sick and physicists exploreatoms. But many others make surprising use oftheir academic training. For example, a reportprepared for the Task Force shows that about 16percent of oceanographers have degrees in thatsubject. The rest came from such fields as geology,physics, meteorology, engineering, biology, chemis-try, and mathematics. More than one-third em-ployed in mathematics had their highest degree insome other field, such as engineering, physics, oreconomics. Nor is this phenomenon exclusive toGovernment. Industries are also recruiting for a

31

single occupation from several academic disciplines,especially in new fields.

Diversity in the professions and science is demon-strated by the variety of tasks these highly trainedspecialists perform. For example, physicists in thesame organization may work in such quite differentfields as magnetics, optics, fluid mechanics, radiofrequencies, measurement, instrumentation, andaerodynamics. In one study, the National Aero-nautics and Space Administration found that it hadabout 1,000 physicists assigned to over 80 specialties.

The planning and conducting of training forprofessional and scientific employees is obviouslycomplicated by this diversity both in backgroundsand assignments.

Diversity in Nonprofessional Fields

The Task Force also looked at other occupationsin which the people hired normally have collegedegrees but are not given the coveted label of "pro-fessional." These men and women fill such variousjobs as budget officers, placement officers, com-puter programers, purchasing specialists, air trafficcontrollers, investigators, inspectors, and transpor-tation specialists.

Here, also, people do the kind of work one mightexpectbusiness administration majors enter per-sonnel or budget work, journalism majors becomeinformation specialists and writers, and languagemajors take foreign trade or intelligence positions.However, here again Government employs manypeople in jobs that are a bit afield from their collegetraining. Biologists become inspectors, forestersare found as trainers, English majors emerge asfiscal officers, political scientists enter the field ofmortgage credit. And like their professionalbrethren, these specialize within specialities. Onepurchasing officer may buy only engineering and

construction equipment and another paper andpencils. One personnel officer may recruit pri-marily scientists and another anyone who can readand write reasonably well.

The training, then, of this kind of specialist alsopresents some intricate problems, Later on, thischapter will show that the broad field of techniciantraining too, poses its own difficult questions.

Specialist Distribution

Specialists make up slightly less than a third ofGovernment :

Federal employment of specialists

Occupational categoryTotal

employeesin category

Percent oftotal Federal

civilianemployment

ProfessionalAdministrative-technicalAide-assistant

Total

271, 000350, 000140, 000

761, 000

1012

5

27

Doctors, lawyers, engineers, and others who qual-ify in their respective disciplines for the label areprofessionals. The term "administrative-technical"is used for occupations other than professional nor-mally filled by persons having college degrees. Inthe "aide-assistant" category are employees in jobswhich normally require extensive training and edu-cation beyond the high school level, but not col-legesuch as engineering technicians, medical tech-nicians, and research assistants.

After examination of some general training prob-lems and solutions, a look into some particular prob-lems that apply to specific fields will follow.

Transition

A young person who decides to become a pro-fessional or a scientist often does so because he wantsto become like some person he knows or has readabout. He wants, as Ohm did, to discover a lawabout electricity and have it named after him. Hewants to be a Burbank who created new plant life.He wants to construct new building forms that willsurpass those of Frank Lloyd Wright. His readingand aspirations focus on individual achievement andfame. As he works toward an advanced degree, hisacademic advisers require him to make a personal

32

and unique contribution to his field without helpfrom others,

Then, after 10 years of nurturing his talents andskills, he enters the world of work. In industryor Government, his specialist leaders tell him to"get on the team." They tell him what to do andwhen and how to do it. They check his desire toexplore little byways that might excite his intellect.

Some new graduates soon subside into apatheticacceptance, some escape into universities or con-sultant firms or private practice, and some becomeobstructive and uncooperative. Others, however,apply their individual creativity to the organiza-tion's work and multiply their skills and knowledgesthrough use of the tremendous resources of the or-ganization's apparatus. Government needs more ofthese. To get them, Government needs trainingwhich will turn young individualists into men andwomen who believe sincerely that they can attaintheir own goals through pursuing the organization'sgoals.

Need for Early Orientation

A primary need of Federal agencies for theirnew professionals and scientists, then, is a trainingprogram which gentles able young "colts" to theorganizational bridle without breaking their spirits.Few reports described deliberately planned orienta-tion programs designed specifically for this purpose.

The First Supervisor-Manager Team

A young professional's first supervisor-managerteam is the catalyst which together can either sparkan acceptable reaction to organizational life or, onthe other hand, dampen ardor and smother crea-tive impulses.

An agency's orientation planning, therefore,should include identifying supervisor-managementteams who can kindle interest in the problems theorganization must solve, deepen respect for scien-tific method, trigger normal desire for identificationwith a group of competent professionals, and beginbuilding keen interest in self development.

This thinking has an element in it which the TaskForce has not seen specifically expressed elsewhere.Task Force members did see and hear about pro-grams which recognize the importance of a newprofessional's first supervisor. Data from socialscience studies, however, indicate that the super-visor's boss is also vital to the formula for speedy andeffective orientation. A manager-professional in

such a team creates a supportive climate, provides abroader outlook, and reinforces learning experi-ences.

Formal Orientation

Well-run orientation classes can supplement butcertainly not replace the supervisor-manager team.The data is not too clear on this point, but there isreason to believe that many agencies would do wellto review their programs for orientation of pro-fessionals. The Task Force has no objection to pro-grams which provide needed information aboutleave, pay, insurance, retirement, organizationalstructure, and the like. It urges, however, thatagencies consider what they want formal orientationto do and then set about designing a program to doit.

The Task Force believes that a sound, formalorientation program should:

Emphasize the special nature of public service :its ethics, its relation to social programs, its rela-tion to State and local government, and itsimpact on community lifeTake advantage of the fact that a new employeeis open to changeMake clear agency attitudes and programs sup-portive to professional self development andgrowthCommunicate agency professional traditions,professional values and standardsInterest new employees who show potentialin preparing themselves for future leadershippositions through both work experience andstudy

Open the doors to different kinds of careers asspecialist, manager, or a combination of thetwoMake clear how work will be evaluated andrewardedEnable a new employee to grasp the breadth ofagency programs, their place in the FederalGovernment and their meaning and value tosociety

Recommendation

The Task Force recommends :That agency heads review their orientation pro-

gram for professionals, scientists, and administra-tive-technical employees to:

(1) Set clear goals;(2) Identify and assign newcomers for orienta-

33

tion to supervisor-manager teams with outstand-ing training capacities; and

(3) Reorganize formal programs so that theywill supplement on-the-job training and com-municate occupational and Government stand-ards and values.

Creating Journeymen Professionals

Once a professional is settled in his job, his su-pervisor-manager team should be bringing him asrapidly as possible to a journeyman capability. Hismentors need to chart a course which avoids thetwin dangers of dependency and rejection. Theteam should set for themselves goals for movingthe trainee :

From a state in which he looks to them foradvice on self-development to one in whichhe can spot his own weaknesses and plan hisown studiesFrom dependence in planning and carrying outresearch or other professional activities to astate in which he and the bosses are interde-pendent; he, the doer, to share with them thesetting of goals and targetsFrom a need for daily guidance to self-disci-pline in meeting work schedulesFrom an understanding of immediate problemsand issues to an understanding of long-rangeagency needs and professional goals

Much of this will have to be done by the super-visor-manager team on the job through work as-signments, coaching, and feedback on performance.However, in the process of doing these things, theteam may find that an employee will grow fasterif they can accelerate his learning of theory andconcepts. In such cases, of course, the manage-ment team should have the authority and means toopen training and education courses to the buddingprofessional. The use of universities for this pur-pose is discussed in chapter eight.

Use of Senior Staff

In developing professional employees, the man-agement team and the agency should make full useof senior staff. The Task Force was surprised atthe great range of practice in agencies on this.Some agencies leave all instruction up to the jour-neyman level in the hands of supervisors who havehad little or no help in becoming competent train-ers. At the opposite and desirable end of the scale,

agencies assign each junior employee to work underclose guidance from both a supervisor and a com-petent journeyman. They also organize coursestaught by such journeymen or by professionals fromeven more advanced levels of competence.

Rotation

The military, the Foreign Service, the InternalRevenue Service, and a few other agencies havemade good use of in-service training in which menand women are rotated through a variety of spe-cialized jobs. Such experience can be especiallyuseful in broadening a specialist who is a potentialmanager, but it has also been used for broadeningprofessional knowledge and skill. The Task Forcecommends this practice to all agencies.

Need for Formal Training

A matter of some concern is the wide variation inthe effectiveness with which agencies identify jointtraining needs and then develop formal courses forspecialists. Methods for surveying of training needsare well known to competent employee develop-ment officers, and should be available to all agencyofficials. Although agencies reported that one oftheir major training needs is for courses designed tokeep journeymen abreast of developments, the TaskForce has less clear data as to how some agenciesexpect to do this effectively.

Recommendations

The Task Force recommends:That heads of agencies create conditions for

professional, scientific, and administrative em-ployees where the need for self development isapparent, personal efforts are rewarded, studymaterials are readily accessible, and opportuni-ties to use new knowledge, concepts, and skillsare made available (repeated from chapter two) ;

That agency heads review their present in-service training for professionals, scientists, andadministrative-technical employees to make surethat the more experienced and the most able areassigned to give needed training to others;

That agency heads establish systems for a con-tinuing review of specialist training needs and forjob rotation and in-service courses to meet mostof these needs:

In-Agency Teaching Resources

The last recommendation may seem to deny theuse of universities. Chapter eight will make clearthat this is not the case. However, the Task Forcehas observed that agencies have tremendous re-sources in their present staffs, In many areas, Fed-eral scientists are on the frontiers of knowledgetheir writings and findings create the new theory andoverthrow the old. In other areas, Federal attor-neys, personnel officers, economists, fiscal officers,accountants, and many other specialists are recog-nized nationwide and even worldwide as outstand-ing in their knowledge of both theory and practice,Not all these men and women can teach, but manyof them can or could with a little instruction intraining methodology, If an agency head deter-mines that he wants the best possible teachers forneeded formal courses, he will certainly find manyof them in his own agency. These employees areavailable, close by, and can be assigned readily tosuch instruction.

The recommendations on this point are aimedsquarely at solving the training problems created bythe tremendous diversity of Federal professionalprograms and the people who staff them. Eachspeciality produces its own experts who thereby be-come themselves training resources. Professionshave always provided their own elevators to lift ap-prentices to journeymen and finally to masters.Federal agencies need to use effectively the lift thatcan be supplied by the best of their own staffs.

Renewal for Professionals

The hallmark of a master professional is continu-ing growth. Why, then, is so much heard aboutthe dangerous age from 35 to 40 in which growthceases? The complaint is the same in both industryand Government. Simple observation and a bitof psychology lead to the conclusion that the com-plaint reflects a real, not an imaginary, problem.

When a professional employee is young, almostevery situation he encounters brings a new problem.He faces them all with a fresh, open mind. Buteach situation leaves in his mind precedents, rulesof thumb, principles. The older he gets the morehe uses old experience as the source of solutions totoday's problems. Unfortunately, today's problemsare often new ones and his old answers may be lessthan adequate. If he would search out new find-ings in his field, he would discover better answers.

But by the time some people are over 35, they areovercontent with old answers. This is a seriousshortcoming in master professionals.

Master Professionals

Government needs hundreds of master profes-sionals- -eager to learn, eager to apply what theylearn. Every bit of evidence we have makes usconclude that an organization must make strong,continuing and systematic effort to create this kindof eager learning.

What does Government need in a master profes-sional? A master is first of all knowledgeable,deeply knowledgeable about his field. He is ex-traordinarily skilled in finding solutions to unusual.problems. He is an agency resource, a consultantto others. As he grows, he often becomes a nationalor a world resource. He is creative, imaginative,and productive. He gives of himself to others.Psychologists say that he is motivated by a desirefor self-fulfillment.

The suggestions presented up to now have beenaimed at creating management teams which sup-port self development and growth. But after menor women attain the master level, the organizationmust still take positive action to keep them growing.Much that has been said about creating a climatewhich supports self development applies to masters.However, the more formal training of these experi-enced people requires special care.

Long-Term Training for Master Professionals

Agencies and industries have experimented withdifferent methods of long-term training for masters.Return to school as students is out of the question;these people write the texts. But return to school toteach or to participate in research with other mast-ers, or to explore a library which has rare ma-terialsthese can be valuable growth opportunities.Some agencies send their masters to industrial orFederal or overseas laboratories that have way-out-in-front programs. A few agencies have obtainedspecial legislation permitting them to exchange theiremployees with those of local governments, and usethis as a means of stimulating further growth.

Determinations for Full-Time Training

There are principles or conclusions which arecritical to the success of full-time and residentialtraining:

35

Not all masters have capacity for self-renewalbut the best do

Agency officials should therefore carefully se-lect those who can benefitseeking out thosewho have previously demonstrated growth, andavoiding dudsAbsence from jobs for long periods, over threemonths, has a marked impact on the individual;he is likely to return quite a different person.Agency officials must plan to deal with suchchange by assuring that :

(1) Full-time and residential training as-signments Should be granted only when theindividual has clear growth goals and has iden-tified places where this growth can be stimu-lated or renewed;

( 2) A specific person of the same or pref-erably higher grade should be assigned to keepin touch with the individual while he is awayfrom the job; reports of progress should beexpected and news from the agency shouldbe forwarded;

(3) A considerable time before the end ofthe training, correspondence or conversationsshould negotiate provisions for what the masterwill do on returnpreferably a new job ornew assignment;

(4) On return to work, the trainee shouldpresent to agency officials both a written reportand an oral briefing on his training experience;

(5) The returning professional should becarefully oriented to his new job; if he staysin his old, new goals or assignments should 'beworked out with him.

The above list seems rather obvious. However,the Task Force did learn from interviews that mostagencies are remarkably unsystematic about suchlong-term training for .experienced professionals.

A report to the Task Force on 53 recipients of theRockefeller Public Service Awards, some of whomwere professionals, shows that 11 are now in uni-versities, 6 in foundations and similar organiza-tions, and 5 in business or industry a loss of 40percent. This rate of loss certainly indicates thatagencies should recheck the results of their experi-ence with long-term training. If they have a highloss rate, they should not discontinue long-termtraining but instead find ways of reducing the lossfrom it.

RecommendationThe Task Force, therefore, recommends:

That agency heads establish a sound system forselecting the best of experienced professionals forassignment to full-time and residential trainingwhich will supplement their self-development;for setting objectives for such training; for main-taining relationships with the trainee while awayfrom the job; for orienting the trainee back towork, preferably in some new assignment; andfor evaluating agency experience with such train-ing.

Need for Regular Reviews

One more overall problem calls for considerktion before moving to problems of specific fields.Agencies need to develop orderly systems for careeradvancement for their professionals. Agency of-ficials need to establish clear standards for advance-ment and insist that the standards be met before,promotion is granted.

Some agencies have established clearcut stand-ards for journeyman performance and require areview of a professional's performance and stage ofdevelopment before promotion to that level. TheTask Force learned of one agency which has carefulreviews of the work of experienced professionalsby their peers, which can result in counseling ses-sions to stimulate more self development or in re-assignments or promotions.

An agency may wish to give wide latitude in suchreviews to the first-level supervisors of professionals.However, the organization as a whole needs to berepresented at important stages of advancement.Agencies'are therefore urged to introduce divisionalor bureau reviews at two or three career stages.If peer groups are not used for assessment, thenother means should be provided which foster thecreation and acceptance of high professional stand-ards of performance.

Recommendations

The Task Force recommends :That agency heads create systems which will

identify marginal producers among their profes-sional, scientific, and administrative-technicalemployees, and provide them counseling, train-ing, education, or reassignments;

That agency heads provide standards for ad-vancement to important career stages and estab-lish review systems which advance only profes-sionals of excellence.

36

Because reports indicated inadequacies in profes.sional training in small units or at isolated units,the Task Force further recommends;

That agency heads make certain that develop-mental opportunities, training and education areavailable to professional, administrative, andtechnical employees who Work at remote loca-tions, in small groups, or alone (repeated fromchapter five).

Technicians

Technicians differ from skilled. craftsmen in thatthey have greater knowledge of professional or sci-entific methods and some grasp of basic theory.They differ from professionals in less grasp of theory,narrower understanding of tool subjects such asmathematics, and greater skill in manipulation ofinstruments, jigs, machines, and the like. In alaboratory, a technician may carry out tests accord-ing to a professional's specifications, he may setup, calibrate, and operate measuring devices, hemay record data and perform prescribed mathe-matical calculations.

Upgrading Technicians

Many observers see in technicians a potent meansof alleviating the continuing shortage of profes-sionals. Agency officials can shred out routine andless demanding work from the tasks of profes-sionals and assign it to technicians, thereby reduc-ing the number of professionals needed and makingbetter use of the capacities of those who are avail-able.

Recruiting

Although the Task Force is concerned primarilywith post-entry training of Federal employees, itcannot ignore the shortage of trained technicians.The Bureau of Labor Statistics has estimated thatGovernment and industry will be able in the com-ing 5 to 10 years to meet less than half of theirrecruiting needs from persons trained in technicalinstitutes, junior colleges, community colleges, andtechnical schools. This means that Federal agen-cies, while recruiting from these schools' graduates,must at the same time plan on finding among highschool graduates and its own employees in lowerpaid jobs a sizable number of persons with theability to be trained and upgradedr to technicianpositions. The ratios will vary with the' differentspecialties.

RecommendationsThe Task Force recommends:

That the Commissioner of Education look intotechnician training and take steps to:

(1) Improve the quality of ,pre-entry trainingof technicians;

(2) Provide more adequate facilities andequipment in technical training institutions; and

(3) Attract greater numbers of trainees toareas of greatest technician shortages.

That heads of professional and scientific pro-grams make manpower studies to determine howmuch routine professional work can be trans-ferred to technicians, how many less professionalsand how many more technicians this would re-quire., and to make 5-year projections of both theneed for technicians and the probable supply;

That heads of such programs review their re-cruiting and training programs for technicians,plan what training is needed for the kinds of re-cruits they are likely to obtain and at what levels,and then make sure that needed training is pro-vided at the time it is needed;

That heads of agencies establish systems where-by:

(1) The opportunities for upgrading to tech-nician jobs are effectively communicated to em-ployees and to employee organizations;

(2) Those who express interest are ranked asto their potential for such assignments; and

(3) The best of these are trained for the jobs.

Different LevelsDifferent Training

Agency heads should be prepared to establishtraining for new technicians at two or even morequite different levels. Training for that half whowill come from high school or from their own fileclerks, assistants, and helpers is going to be longerin duration and much more extensive in coverage.Training to orient graduates of good technicalschools will be much shorter and probably directedmore at agency procedures, methods, and resources.

From the check made of existing training pro-grams, the task force suggests that heads of pro-grams employing technicians should order animmediate review of their current teaching ma-terials used in upgrading technicians and in sup-plementing their self development. New trainingmaterials, some in the form of programmed instruc-tion, are rapidly becoming available.

37

More Motivation for Technicians

After the technician is initially trained and per-forming his job competently, little seems to bedone for him unless his job is affected by newtechnology, new machines, or new methods andhe must be retrained to avoid being displaced. Theimpression is strong that technicians are too oftenignored when the training pie is cut.

One paper prepared for the Task Force reportedthat technicians feel unhappy about their lack ofstatus in their organizations. Another paper, pub-lished in 1962, stresses the importance of recognizingthe dignity of the technician and the worth of hiswork. There is enough evidence to support a con-viction that the situation deserves, even demands,a special study to recommend what should be donefor whom and when.

As of this moment, the Task Force urges thatheads of professional programs take some importantsteps:

Make sure that supervisors of technicians, in-cluding very definitely those who are pro-fessionals, are trained in modern theories ofleadership and that their superiors take stepsto see to it that these supervisors apply suchtheories in their daily work;Make plans well in advance of technologicalor other changes affecting technicians inorder to retrain them before their presentskills become obsolete;

With assistance from the Civil Service Com-mission, look for savings and better instruc-tion that could be obtained through inter-agency training in Washington and the field,designate agencies to sponsor such training,and cooperate in conducting needed courses;Unite technicians and the professionals withwhom they work into a well-knit, effectivesystem.

Status for Technicians

The problem of status is not going to be settledby more money or higher grades. Each agencyneeds to develop supervisors, managers, and person-nel officials who together create real status for tech-nicians. System training seems clearly called forhere. Working together, the three groups mustlearn how to make the tasks of technicians more im-portant in the organization, how to make tech-nicians and professionals more interdependent (andtechnicians less dependent and passive), how to

bring professionals to recognize and reward tech-nicians for their knowledge, skills, and abilities.

Continuing Training for Technicians

Lastly, managers of programs employing techni-cians should look into the training needs of techni-cians over a considerable time span. Too often, theassumption seems to be that technicians need onlyinitial training and retraining when obsolescencethreatens. Some technical fields are so complex,such as engineering drafting, and some are evolvingso fast, such as computer technology, as to requirecontinuing training for technicians.

Further Professional Training Needs

To illustrate problems in professional develop-ment, the Task Force turns here to two occupationalgroups : attorneys and economists.

Law

The Civil Service Commission reports that theGovernment employs 9,060 attorneys. This is thelargest professional group for which no single, well-rounded career development and training programcould be located. Thousands of attorneys, al-though they are not members of Government's for-mal merit system, spend their working lives inFederal employment. They are covered by theGovernment Employees Training Act, just as thou-sands of other employees are. Clearly, attorneysneed. developmental opportunities, training andeducation during all stages of their careers. Inter-views by Task Force representatives and their subse-quent reports indicate that there is a small butgrowing group of attorneys who agree.

Attorneys are essential Federal employees. Theyrepresent the public in cases involving millions ofdollars and thousands of people. In court theyface highly paid competition. A man in privatepractice may make as much on one case as his Gov-ernment opponent earns in a year. They fight forcivil rights, defend the Government against unjustclaims, prosecute criminals, negotiate contracts fordefense activities, conduct labor litigation, and an-ticipate the jurisprudence of space exploration.

Merits of Continuing Training

Attorneys are then vital to Government. Is itpossible that once they have been admitted to the

38

bar, their learning need come only from daily prac-tice? The Task Force rejects this out of hand. At-torneys work at many different grade levels. Train-ing is needed all along the way, to accelerate andexpand the growth of young attorneys and to con-tinue development of the senior ones. But themost cogent argument supporting continuing train-ing for Federal attorneys is the broad scope of theirjobs.

Competence in law comes from a knowledge notonly of cases and precedents; it calls for:

Understanding of the philosophy of lawA feeling for the sweep of history and thechanges in American institutionsA knowledge of the subject-matter field inwhich the individual attorney practices (engi-neering, space, civil rights, etc.)Ability to reason and to marshal argumentsUnderstanding of Government and legislativeprocessesUnderstanding of public pressures, clientelegroups, and political actionAbility to guide American law toward thechanging needs of our society

All that has been said about and recommendedfor professional training applies to attorneys, in-cluding self development, on-the-job training andagency support of training and education. An en-couraging note in this field is found in the AmericanBar Association's leadership in developing educa-tional programs.

Recommendations

The Task Force recommends :That the Department of Justice and the Civil

Service Commission explore means by which in-teragency training can be established and offeredfor attorneys;

That the General Counsels seek advice andassistance from their professional societies, per-sonnel officers, and the Civil Service Commissionin establishing agency programs of career ad-vancement, training, and education for attorneys.

Economists

Economists also illustrate well some of the prob-lems of training and educating professionals. Gov-ernment employs about 3,700 of them.

Economists apply their skills to the analysis ofthe many forces affecting the economy. They arestudying money and money .markets, credit instru-

merits and systems, banking processes and institu-tions, capitalization, and investment. They antici-pate what will happen as a result of changes in Gov-ernment taxing, borrowing, and spending. Someare concerned with theories and principles which ex-amine the role of labor in the economic process :the demand, supply, use and pay of labor as factorsin production. Some analyze the economy of a par-ticular region of the United States, others are con-cerned with particular industries and still otherswith the interplay of economic forces between na-tions. They may be primarily engaged in research.Some may be advisers to top-level Government de-cision makers. Others are involved in gathering,interpreting, and publishing economic data.

Merits of. Continuing Training

A sampling of a bureau employing 500 economistsshowed, that a majority had advanced degrees and athird had doctorates. Most economists in most bu-reaus in Government are well educated. However,much of what is learned today in economics is soonoutdated or refined. Economists need to study con-stantly in order to keep abreast of changing eco-nomic theories, new concepts of model construction,and the development of new statistical techniques,among other things.

All that has been said about training professionals,their self development, their supervision, and thesupport by the agency of their training and educa-tion, applies with special force to economists. How-ever, some bureaus have almost no training activi-ties, a number make funds available to support even-ing courses or short-term seminars, but few supportfull-time or residential training. Only one Depart-ment reported a fairly clearcut program of careeradvancement for economists which puts into effectthe principles and concepts that the Task Force hasbeen urging on agencies.

A report to the Task Force estimates that if agen-cies put 3 percent of their economist salaries intotraining for the upper quarter of their economists,the minimum benefit should be more than 15 per-cent and would probably average around 25 percentin increased productivity.

Recommendations

The Task Force recommends :

That the Civil Service Commission, togetherwith representatives from appropriate agencies,

39

explore means by which interagency training canbe established and offered for economists;

That executives in charge of programs employ-ing economists seek advice and assistance fromuniversity scholars, personnel officers, and theCivil Service Commission in establishing agencyprograms of career advancement, training, andeducation for economists.

Other Specialties

Exploration of other occupation groups by theTask Force shows that some, especially in the hardsciences and medicine, have sophisticated and effec-tive training programs. However, those with hap-hazard or ineffectual programs should tighten them.

Planning Ahead for Specialists

Chapter four reviewed projections made for theTask Force by the Bureau of Labor Statistics in con-nection with changein Government programs, oc-cupational requirements, and technology. Agencyheads in charge of affected organizations shouldinitiate plans for new and expanded Governmentprograms; should make certain what must be doneto continue or broaden present and future efforts totrain and educate professional, administrative, andtechnical employees for expanding programs in suchareas as:

EducationHousingSocial securityCommunity

developmentAnti-poverty programs

Natural resourcesWater and air

pollutionCommerce and

transportation

Agency heads in programs which are affected byswift technological changes need to make certainwhat should be done to continue or expand theirpresent efforts to provide training and education forprofessional, administrative, and technical em-ployees whose work will be affected in the fields of :

CommunicationsHealthInformation retrievalConstruction

ComputersNatural sciences and

engineering

Eveuation

In designing these programs, managers and em-ployee development officers should set clear-cut

goals and build in evaluation systems which willtest the extent to which the training and educationhit the targets. More on evaluation will be pre-sented in chapter nine.

Conclusion

Specialization goes back hundreds of years butmodern times have created organizations whichmultiply its values a hundredfold. Agency-pro-vided training and education is one of the mostpotent of the multipliers. To take advantage ofthis power, managers and executives must make

sure that professional, administrative, and techni-cal specialists continually :

Increase their knowledge and skillsPut new technology to Work for GovernmentCommunicate clearly their findings to manage-mentUnderstand thoroughly management goals andneedsSearch other fields for concepts applicable totheir ownIntegrate their specialty into the agency pro-gramUnderstand the social perspectives of Govern-ment

Chapter Seven.

Interagency Training

Most of the training for professional, adminis-trative, and technical employees is given by anagency using its own facilities. Prior to 1958, onlydefense agencies and a few others could send em-ployees to universities and other non-Governmentinstitutions for training and only one agency couldlegally open its training facilities to employees ofanother. The Government Employees TrainingAct changed all that. In the next chapter, theTask Force will look at training in universities andtechnical schools; in this chapter, at interagencytraining.

A New Venture

A major aim in any sound organization is direct-ing the labors of many individuals toward commongoals. Such individuals must identify with theorganization, develop loyalty to it, and seek topromote its ends. The problem is that people tendto identify strongly with their own work group, andless strongly with each successively larger part of thewhole. It is not surprising then, that the FederalGovernment at times needs special effort and lead-ership to create and operate programs which cutacross agency and bureau lines.

The Civil Service Commission is the source of thespecial effort and leadership that brought into beinga whole new Government-wide procedure to helpemployees broaden their identification with Federalservicethe interagency training program. Toaccomplish this, the Commission :

Established and conducted training courses forother agencies;

Encouraged a number of agencies to admit totheir courses employees from other agencies;

41

Developed and periodically published a cata-log of interagency courses; andPromulgated policies to coordinate such train-ing and to avoid duplication of effort.

65,000 Trainees

Of the 57 agencies replying to Task Force ques-tionnaires, 56 indicated that they had sent em-ployees to interagency training courses. In 1966,65,000 employees went to such courses in 25 differ-ent agencies. However, 94 percent of this trainingwas provided by only six agencies: Civil ServiceCommission, General Services Administration,Army, Labor, State, and Health, Education, andWelfare. The first two provided 60 percent of theservice. While the data show a healthy growthsince 1959, reports to the Task Force indicate prob-lems in two areas : (1) some reluctance to providetraining to employees from other organizations, (2)some difficulty in getting employees from differentagencies together for training in remote locations.

The fact that 32 out of the 57 reporting agenciesdid not share their courses with others is some indi.cation of parochialism, but even more striking to usis the fact that 94 percent of interagency courseswere given by only six agencies. The Task Forceconcludes that the opportunities for interagencytraining need to be more fully exploited.

Professionals and Technicians

The need for interagency training for profession-als and technicians is reported in chapter six. TheCommission catalog of interagency training for 1966shows that the courses offered for employees inprocessional, administrative, and technical occupa-tions break down in this way:

Interagency courses

CategoryNumber

ofcourses

Percentof total

Management.. I, 024 54Professional 47 2Administrative-technical 333 18Aide-assistant (technicians) 316 17Other 168 9

Total 1, 888 100

The quantity of interagency courses offered pro-fessionals is not in proportion to their numbers.Most of the courses given administrative-technicalemployees are in the field of personnel adminis-tration. With more of the creative effort andskilled leadership that brought interagency train-ing into being, additional interagency training pro-grams can be developed.

Field Activities

The Task Force's concern about the lack of train-ing for employees located in small units, especiallythose in units of 200 or less outside of Washington,was made clear in chapters five and six. Govern-ment has 1,000 or more employees in each of 153metropolitan areas. Cooperation and pooling of re-sources by agencies in these cities could producebetter training for professional, administrative, andtechnical employees at a lower cost than most agen-cies. can provide for themselves.

The Task Force did not collect data on inter-agency training overseas. As there are about138,000 Federal employees working in other coun-tries, in addition to those employed by the Depart-ment of State, the Task Force suggests that the CivilService Commission seek to extend agency sharingof courses to employees overseas.

Need for New Courses

Some agencies have functions cutting across allor a major part of other agencies' operations. Onlyfive of these offer interagency training primarilyfor other agencies : Civil Service Commission, Gen-eral Services Administration, Labor, GovernmentPrinting Office, and the Bureau of the Budget. TheTask Force suggests that more agencies should pro-vide such service.

Typical functions performed in more than oneagency are automatic data processing, investiga-tions, and civil rights. The Great Society programs,for example, affect the work of the Office of Eco-nomic Opportunity, the Departments of Agriculture,Defense, Health, Education, and Welfare, Justice,Labor, and 14 other agencies. Cooperation andpooling of resources for training in functional areascould produce better training for professional, ad-ministrative, and technical employees at a lowercost than most agencies can provide for themselves.In addition, such pooling could produce

A team approach to national programsComparable procedures for clientele who mustdeal with more than one agencyA sharing of superior techniques for providingGovernment servicesA sharing of information, methods and tech-niques across agency linesA reduction in duplication of training efforts

Executive Order 10800

Er-cutive Order 10800 directs the heads of agen-cies to "utilize the training facilities and services ofother departments to the extent practicable, providetraining facilities and services to other departmentswhen practical and without interference with thedepartment's mission, and cooperate in the develop-ment of interdepartmental employee training ac-tivities."

Recommendation

Now that interagency training programs havedemonstrated their value, the Task Force is of theopinion that this policy needs, to be modified tochange the emphasis. Therefore the Task Forcerecommends :

That the President provide that agencies shallshare their training facilities and cooperate ininteragency training whenever this will result insavings for Government or produce better serviceto the public.Task Force members are agreed that interagency

training programs provide Government a valuablenew training resource which should be continuedand expanded in the future. An agency should19ok to interagency training when :

Another agency is better qualified to provide aneeded training course or program because ithas more expertise, experience, and competent

instructors, and better available training ma-terials, equipment, facilities or other resources;Sharing by a group of agencies in a course orprogram can provide training more econom-ically or more effectively; andSharing by a group of agencies will permit themto provide more specialized training of a higherquality than any one of them can alone provide.

Recommendations

Action is needed to get an improved interagencytraining program underway. The Task Forcerecommends :

That agency heads open their training pro-grams to employees from other agencies;

That agency heads cooperate with each otherand with the Civil Service Commission in con;tinuing and expanding interagency programs;

That the Civil Service Commission identifymajor functional areas in which new or additionalinteragency training is needed;

That the Commission negotiate with. the agencyhaving prime responsibility for a function eitherto provide that training or to provide advice oncourse content; and

That the Commission take steps to have suchcourses set up and conducted as often as neededand in convenient locations in Washington, in thefield, and overseas.

Training Centers

Reports to the Task Force show that 17 Federalagencies operate 49 training centers. Of these, 26opened their courses to employees of other agencies;13 made limited training spvces available.

The Civil Service Commission operates two Ex-ecutive Seminar Centers, anti general centers inWashington and 10 regional offices. All were es-tablished specifically to provide interagency train-ing. The seminars at Berke'ey, California, andKings Point, New York, and proposed residentialcenter for career executi.-res are discussed in chapterfive.

Recommendation

As agency training centers might profitably beexplored to see if they are potential sources ofadditional interagency training, the Task Forcerecommends :

That the Civil Service Commission inventoryagency training centers and make their programsknown to all agencies.

264-239 0 - 67 - 4 43

Interagency Exchange of Employees

Stressed throughout this Report are the impor-tance and value of on-the-job instruction. The Na-tional Bureau of Standards and a few other unitshave accepted employees from other agencies toparticipate in experiments and do other useful work.Checks show that both trainees and gainers havebenefited, The Task Force urges agencies to lookinto the possibility of extending this kind of experi-ence to more fields. Interagency training throughon-the-job experience is eminently desirable.

Cost Sharing

A simple phrase in the Government EmployeesTraining Act proved to be the mechanism thatmade interagency training possible in the CivilService Commission, It authorized one agency toreimburse another for training services. From anaccounting point of view, this produced a quite de-sirable resultthe costs of training were allocatedto the service or function that benefi ted. This isalso consistent with the Government's planning, pro-gramming, and budgeting system (PPBS) which isdiscussed further in chapter nine.

Reimbursement, from the Commission's point ofview, has other desirable features. It permits rapidresponse to a training need which develops on shortnotice. Thus, when the President directed agen-cies to install PPBS, the Commission was , able todevelop and offer PPBS courses within weeks of theannouncement.

Billing

The Department of State and the Civil ServiceCommission charge for most of the inter-agency training they offer. Should other agenciesmake similar charges? The Task Force thinks thatthe answer must be found in common sense. Anagency which seldom gives a course, and acceptsbut one or two other-agency employees, would findthat the costs of billing and collecting hardly justifythe effort. If an agency provides a course for itsown staff and the addition of other-agency em-ployees raises its expenses by little or nothing, it haslittle reason to charge. The Task Force takes theposition that where the costs are significant, agen-cies should ask for reimbursement in order that thecharges to operations reflect training expensescorrectly.

The Task Force received suggestions from agen-cies that the reimbursement billing procedures couldand should be simplified and is passing these on tothe Civil Service Commission for study and action.

1

Recommendation

The Task Force recommendsThat agency heads establish a policy which

calls for reimbursement for their training servicesto other agencies.

Fiscal Problems

Reports to the Task Force show that the cost perhour for interagency training is lower than suchcosts for training in non-Government facilities. Assome data on outside training were beyond thescope of this study, the figures are not reported here.The Task Force, therefore, urges agency officials toput into their budget requests funds for inter-agency training (1) for programs which they willconduct for themselves and others, and (2) for pro-grams offered in other agencies to which they willsend their employees.

In chapter nine, this Report presents more on bud-geting. The important thing is that program spe-ciaNsts and officials responsible for agency budgetsallow time and money for this cost-saving type ofinstruction.

A recurring theme in the reports received fromagencies was that Federal fiscal procedures makedifficult the purchase of teaching machines, over-head projectors, loudspeakers, and other equipmentwhich must be charged as capital funds rather thanto current expenses. When this fiscal situation iscomplicated by cost sharing, it becomes indeed atroublesome question.

The Task Force suggests that the Civil ServiceCommission explore this problem with the appro-

44

priate fiscal officers to determine how training pro-grams can best be provided with adequate instruc-tional equipment. At the same time the Commis-sion should look into problems of renting space fortraining.

Conclusion

Interagency training is the major innovation inrecent years in Federal career development. It hasresulted in the establishment of two fine ExecutiveSeminar Centers, one at Kings Point, New York, andthe other at Berkeley, California. It will provide thesinews for the residential center for training top-level career executives which the Task Force recom-mended in chapter five.

The benefits of cost-shared training deserve moreattention from agency executives, It permitscourses to be given more frequently in more con-venient locations with more skilled instructors.The pooled funds can be used by the host to pro-duce better courses now and in the future for hisagency and others.

Most importantly, interagency training directlyserves the interests of the President. It does this bycutting costs and improving the quality of train-ing. It is a major assist to the President in bringingcivil servants to :

A broader view of Government;A better understanding of the work of otheragencies; andA reduction, hopefully, in the provincialism ofspecialization.

Chapter Eight

Education

As the population becomes better educated, therelationships between employers and educatorschange. The continuing dialogue between the twohas raised hiring standards and packed ever morecontent into curricula. The tendency for youngAmericans to lengthen the time they spend in stud-ies is shown dramatically below:

Education of Americans

Ratio: Ratio:Number High College

high school Number graduatesYear school graduates college to total

graduates to total17-year-

olds

graduates 22-year-olds

1900 94, 883 6.4 27, 410 N.A.1920 311, 266 16. 8 48, 662 2. 61940 1, 221, 475 50.8 125, 856 5, 51950 1, 199, 700 59. 0 432, 058 12. 41960. 1, 864, 000 65. 1 392, 440 18. 1

1964 2, 290, 000 76. 3 498, 654 N.A.

N.A. =Not available.Source: Bureau of Labor Statistics.

The United States has gone from a nation inwhich the average job applicant before World War Ihad but a fifth grade education to one in which atypical applicant today has a high school educationor more. Employers and educators agree on thebasics that the educational system should provide :arithmetic, reading, mathematics, social studies,physical chemistry, engineering, and other core sub-jects. They do not altogether agree on what kind ofvocational training high schools should provide orhow much job training a college should provide.The mean lies somewhere between those who wantschools to prepare students for specific jobs inspecific industries and those who want schools toprepare students for a changing world in which aprime need is to learn how to learn.

45

University Relationships

The Task Force takes a pragmatic approach. Itsuggests that relationships with universities shouldbe determined by such factors as:

The training and education employees needWhat training universities can do best, bothnow and in the futureWhat training Government agencies can dobest

Universities today can turn out students ablytrained in broad academic disciplines: physics, soci-ology, electronics engineering, astronomy, lan-guages, medicine, political science. From Bureauof Labor Statistics projections, it seems likely thatthey will be hard-pressed to provide the facultyand facilities they need to meet the rising demandfor education.

Earned degrees[Bureau of' Labor statistics projections]

Degree 1965 1975 Increase,percent

Bachelor 539, 000 906, 000 68Master 112, 000 205, 000 83Doctor 16, 500 32, 000 94

The changes in specific fields will vary widely.Bachelor degrees in agriculture for example, areexpected to decrease. Bachelor degrees in mathe-matics will probably increase by 200 percent.

Government Experience for Faculty Members

The Task Force is of the opinion that industryand Government should do all that can be donein this period of expansion to help universitiesmeet their needs for faculty members. Government

can help develop faculty members and at the sametime provide itself a fine resource.

The Civil Service Commission has authorizedagencies to give temporary limited appointmentsup to one year to bona fide faculty from accreditedcolleges. They may be placed in scientific, profes-sional, analytical, employee development or instruc-tional positions. The advantages to Governmentare clear. Bringing well-educated new blood intothe service would stimulate vigor. The return offaculty members to the campus with solid Federalexperience and good agency contacts should cer-tainly provide outstanding students a counselingsource about Government work.

The advantages to the universities emerge fromthe training, mind-stretching opportunity such ap-pointments offer their faculty members. Govern-ment should, however, give university officials assur-ance that these .trainees will be returned to thecampus and not recruited into the career service.

The Task Force suggests that agency executivesand managers hire more college faculty membersfor one or two semesters, to meet their own agencyneeds, and to provide such faculty members withuseful Federal experience.

Federal Employees in University Courses

The Government has been using universities asa training resource. Since the passage of the Gov-ernment Employees Training Act of 1958, the num-ber of Federal civilian employees taking universitycourses has increased rapidly. Reports from agen-cies show that over 80,000 received support in suchcourses in fiscal year 1966. Agencies reported thatabout 20,000 took courses on their own. It is likelythat some employees did not report their nighttimestudy.

Employees taking university courses

[Fiscal year 19661

Category Numberemployees

Percent ofall employees

in thiscategory

Professional 52, 641 199

Administrative-technical 32, 937Aide-assistant 14,876 11

Total 100, 454 13

46

Agency support for university courses

[Fiscal year 19661

Numberemployees

Percent

Diving work hours, full support 29, 755 37Employees' time, full support 26, 899 33Employees' time, partial support. 14, 403 18During work hours, employees'

expense 9, 501 12During work hours, partial support. 134

Total 80, 692 100

According to agency estimates, the Federal Gov-ernment spent more than $26 million on non-Gov-ernment training for civilian employees in fiscal year1966, Reports as now collected summarize, but donot specifically separate the amount paid universitiesfrom that going to private firms, professional soci-eties, and other non-Government organizations. Ifexisting trends continue, Government will spendeven more in coming years.

Agency Policies and Practices

There is no consistent pattern for agency use ofuniversity education and training. Some agenciesprovide financial support to a professional or sci-entific employee who wants to take a course, if thecourse is directly or indirectly related to his presentor possible future work assignments. Others seldomprovide any support at all, or will provide supportonly when the employee wants to take a course whichrelates specifically to his present work.

Some agencies try to avoid sponsoring employeesfor any courses which could be used for degree pur-poses. Others see advantages in such courses insome cases. Several hundred carefully selected em-ployees are sponsored annually for residential train-ing which often leads to an advanced degree, Therewill be more than 1,000 residential trainees in fiscalyear 1967; practically all of them will be sponsoredby 10 agencies.

Excepting arrangements for residential training,reports to the Task Force fail to show that agenciesmake systematic plans to insure that Government-sponsored university training is used to meet specific,predetermined agency needs. Much of what isdone seems based on the assumption that a generalraising of employee educational qualifications is

necessary and will be of benefit to the Federal Gov-ernment now or in the future,

Need for Policies

The Task Force suggests that agency officials needto review their present practices and establish newpolicies to govern payment for university education.These policies should take into account that univer-sities are best suited to provide :

( 1) Basic education and knowledge of aca-demic disciplines

(2) Preparation for professional careers(3) Knowledge and concepts about our society

as a whole(4) Horizon-stretching courses for selected,

experienced, career officers who need to broadentheir politico-cultural understandingHowever, the policies should also take into ac-

count that Government is best suited to providetraining and education :

( 1) In specializations dealing intensively withspecific applications of theory and practice toGovernment programs

(2) In techniques closely related to work per-formance

(3) On agency policies, programs, and proce-dures

(4) On Federal administ2ative techniques andprocedures

(5) On Federal policies and procedures (suchas Federal personnel administration)

(6) In fields not commonly found in univer-sities

( 7) In frontier areas where the agency is theprime source of knowledge (such as space tech-nology)

Recommendations

The Task Force recommends:That the President enunciate a policy that

agencies shall use Federal facilities for train-ing whenever this will result in savings for Gov-ernment or produce better results at lower costs;

That the President direct agency heads to ana-lyze and clarify policies for support of employeetraining and education:

(1) To distinguish more clearly betweeneducation and training which should be Gov-ernment conducted and that which should beprovided in universities, and

47

(2) To make certain that such trainingand education supports agency mission and itsmanagement needs,

Undergraduate Education

The Task Force is of the opinion that Governmentshould distinguish clearly between its role as an em-ployer and its social role in support of education.As an employer, Government should, as industryand business do, employ professionals and adminis.trative-technical employees who are college grad-uates. The universities will turn out more andmore graduates in the next 10 years. Governmenthas shown its ability to attract thousands of stu-dents to its jobs through the Federal Service En-trance Examination and other examinations.

When it hires a person of college caliber wholacks a college degree, Government as an employershould make up this deficiency only in unusual cir-cumstances. In most cases, a person who wantsand needs support for his undergraduate workshould compete for scholarships and loans on equalterms with other citizens.

Government in its social role should not dis-criminate either for or against its employees. Thereare, however, certain limited circumstances in whichagencies can support undergraduate education withpractical value to themselves. Among them aresuch situations as these, which management mayencounter :

A college graduate who needs a technicalcourse which will improve his job perform-ance;An employee with a degree in one disciplinewho is working in a multi-discipline occupa-tion; orA disadvantaged person from a minority groupwho needs to improve his career potential.

Recommendation

The Task Force recommends :

That the President direct agency heads to es-tablish a policy which makes clear:

(1) That except in special cases, employeesare to obtain undergraduate education at theirown expense or through scholarships and loans;and

(2) The limited circumstances in which em-ployees may be supported at agency expense inundergraduate courses.

Once this policy is established, Government in itssocial role must make certain that its employees do,in fact, have equal opportunity for undergraduateeducation.

The Task Force reviewed proposed legislationwhich would permit persons who receive loans un-der the National Defense Education Act to havehalf those loans forgiven when they entered Stateor other local government service. This principleshould apply also to those who enter the Federalservice.

Recommendation

The Task Force recommends :

That the Secretary of Health, Education, andWelfare make sure that if educational loans are tobe forgiven in whole or in part for those who enterthe public service that such action apply to thosewho enter the Federal service.

Graduate Education

Federal agencies should use scarce training fundsfor graduate education and Government-sponsoredcourses which are properly given after entry into theservice, rather than for undergraduate courses.The amount of support now given by agenciesvaries greatly. Task Force studies show that thesmaller the agency, the less the degree of supportgiven for university courses. Eight out of 19 agen-cies with fewer than 2,000 employees and three outof 17 agencies with 2,000 to 10,000 employees pro-vided little or no support for university study.

The Task Force lacks data on the numbers of pro-fessional and administrative employees by collegi-ate degrees, as many agencies could not supply ussuch information without a special count. Onestudy indicated that a small minority of profes-sional employees at the GS-13 level have doctoratesand not more than one-quarter have a graduatedegree. Of course, there is considerable variationin the percentage of Ph.D.'s among academicdisciplines. Administrative-technical employeesprobably have even less graduate education. Thepotential number of candidates for graduate coursesamong the 621,000 professional and administra-tive-technical employees is, then, large.

The Government should encourage professionaland administrative employees to take graduate workbut financing all who want such study may not befeasible.

48

Stretching the Training Dollar

Agency heads should find ways of making lim-ited funds for graduate training open educationaldoors to as many employees a possible. Agenciesnow provide full support during working hours toonly 37 percent of employees in university coursesand others go on their own time or with partialsupport. This points the way. Agencies canstretch the training dollar by sharing the costs ofgraduate education with their employees. TheTask Force has some evidence that employees i vhotake courses with partial financial support often getgreater personal satisfaction from tangible invest-ment in their own growth. They are more willingto go ahead on their own to get master's degreesor doctorates. One agency took advantage of thisby offering full tuition for half the evening coursestheir employees took.

Recommendations

The Task Force recommends :That agency heads establish policies on gradu-

ate education which make clear;(1) To professional and administrative em-

ployees the vital need for graduate education;(2) To managers and executives the im-

portance of budgeting for reasonable and ade-quate support of graduate education; and

(3) To both groups that graduate educationis to be awarded competitively within budgetedfunds in order of its potential contribution toagency mission.

That agency heads direct executives to stretchthe funds available for graduate education toreach as many professional and administrativeemployees as possible through having employeesshare its costs.

Competition for Graduate Education

Two factors must be considered for the assign-ment of an employee to graduate education : thepotential worth of the course content to agency mis-sion, both present and future; and the potentialcapacity of the individual to benefit from it.

Someone should act for the agency head to de-termine what percentage of the budget for graduateeducation will be allotted to:

(1) Those needing courses closely related totheir present assignments;

(2) Those needing courses related to futureassignments;

(3) Those who would perform better if theytook courses to stretch their knowledge of theories,concepts, and general applications.Once these basic determinations have been made,

the Task Force suggests that employees be encour-aged to apply for graduate education, and that thecompetition to determine the order of selection takeinto consideration these factors :

(1) The relative degree of employees' need fortraining;

(2) The relative potential of employees foradvancement;

(3) The relative extent to which employees'knowledge, skills, attitudes, or performance arelikely to be improved by training;

(4) The relative ability of employees to passthe training on to others upon return to the job;

(5) The relative length of time over which thedepartment expects to benefit from improvedknowledge, skills, attitudes, and performance andthe degree of these benefits;

(6) The training and educational opportuni-ties previously afforded employees under consid-eration; and

(7) The employees' interest in and efforts toimprove their work.*To this list the Task Force adds:

(8) The extent to which employees have dem-onstrated their interest in graduate education bytaking courses at their own expense.

Full-Time and Residential Education

Agencies need policies that clarify when they willpay full costs of graduate training. The TaskForce preference for shared costs in most circum-stances should be clear from what has been pre-sented in this chapter.

Government probably should cover most or ahigh percentage of the costs for full-time training ofa semester or more, especially if it requires an em-ployee to move away from his home. An exampleis a specialist who is moving to a managerial posi-tion and who needs broad training in managementfunctions that a university is well equipped to pro-vide. The costs of such education are usuallybeyond the reach of a Federal employee with afamily.

This type of training is valuable and shouldalways be granted competitively. It should bewidely announced and candidates selected should be

* Adapted from the Federal Personnel Manual.

the most capable add busiest employees. Assign-ments to such education should be made only of thevery best of those who have the capacity to repre-sent the Government ably at a university,

Selecting University Facilities

Agency executives and managers should makesure when Government is to support education, parttime or full time, that the staff, facilities, and coursecontent of the institution selected will provide theneeded instruction. The approving officer shouldconsult master professionals or advanced admin-istrative-technical employees on his own staff aboutthe courses offered. If this does not satisfy him, heshould consult others who are expert in the fields inwhich the training is to be given. He may find ithelpful to check on the experience of other Federalagencies.

If an employee wishes to attend an institutionhaving inadequate instructors, equipment, libraries,or other needed facilities, the executive should in-sist that the courses be taken on the employee's owntime and at his expense.

If there is a choice among educational institu-tions, the officer should approve only those capableof providing a stimulating and useful learning ex-perience. He should take into account:

Competence of instructionGeographic accessibilityTime that training is offeredComparative costs ( tuition, travel, and otherexpenses)Advantages of diversity of education (usingmore than one institution)

Managers and executives should make suit thatassignments following long-term training, take ad-vantage of the new learning and skills.

Professional Updating

The Task Force would like to recommend the useof university graduate schools for up-dating the ex-perienced professional such as a physicisi, with aPh.D. who has worked for Government for 10years. To date, few schools have developed pro-grams which are designed specifically to providecontinuing education for these professionals.When they are put full time for a semester or moreinto courses suited to graduate students, the experi-enced professionals may not benefit sufficiently torepay the cost to Government.

49

Some schools have recently designed core cur-ricula specially developed for and attended bymature specialists who are new to management.The Task Force would like to see universities ex-plore such special curricula in other areas, but inview of the many pressures on them, hesitates to addto their burdens. Until universities can meet thisneed, Government must develop its own up-datingcurricula in agency or interagency programs whereresearch and teaching staff from universities wouldparticipate as appropriate.

Summary

To sum up, agencies should make more opportu-nities for university education available to more em-ployees by:

Utilizing shared-cost trainingPaying costs of education only when employeescomplete courses satisfactorilyAssessing carefully those employees who applyto be reasonably sure of their capability tobenefit from the courses they wish to take

As pointed out in chapter six, agencies shouldmake painstaking followup with employees sent tocourses full time for a semester or more. Manage-ment should keep in touch during the courses to de-termine what is being learned, and how the em-ployee and the agency can best make use of it. Re-entry to the agency should be accordingly plannedahead, and orientation to a new job or new tasksprovided.

Suggestions Versus Practice

The above suggestions are inconsistent with prac-tice in some agencies where offers of graduate edu-cation are used as recruiting incentive. Nor arethey consistent with agency recommendations to theTask Force that seek repeal of a provision in theTraining Act which bars training solely for adegree.

The fine training opportunities in Governmentare attractive to recruits. Government should stressthe developmental possibilities in its examinationannouncements and recruiting literature. How-ever, the Task Force would like to see promises of

university courses kept to a minimum. True, therearc times when agencies may have to do this tocompete in the open market. But education shouldbe a shared investment by both .the employee andGovernment. It should be sought by the employeebecause he sees it as benefiting him. It should be

supported at Federal expense only when it will helpGovernment improve its public service.

Offers of education to recruits may not producebenefits to Government. Offers of degrees to em-ployees are closely parallel. The degree does notitself improve an employee. To benefit Govern-ment, an employee must obtain knowledge anddevelop skill and use it to increase his performance,

That is what this chapter and in fact this Reportis aboutmanagement's need to increase perform-ance. The Task Force can not recommend thateducation be offered solely to obtain a degree but itheartily recommends that Government should sup-port developmental opportunities which lead toimproved performance.

A Special Problem

The Task Force has had, informally, two contra-dictory proposals. One, from a university source,suggested that Government pay higher-than-averagefees for its employees, because the normal tuitiondoes not cover the full cost of the instruction. Thesecond proposal was that because Government isproviding support to universities, a reduced feeshould be charged for its employees.

It is the feeling of the Task Force that when Gov-ernment sends an employee for education, accountswill be better kept on both sides if Governmentpays the same rates for its employees as are chargedother students.

Federal agencies which seek to have specialcourses or programs inaugurated for their employeesshould pay the costs of development and installa-tion. Agencies should expect and obtain reducedcharges after initial, developmental costs have beenfully covered.

Recommendations

The Task Force recommmends :That agency heads make clear that graduate

courses should be granted competitively to em-ployees who:

(1) Need education related to present orfuture job performance (and not solely to geta degree) ;

(2) Are specialists needing broadening forfuture work assignments;That Government provide more training and

education in agency facilities to up -date bothspecialists and specialist-leaders; that Governmentshould seek to attack the causes of shortages when

50

professional, administrative, and technical re-cruits are in short supply and limit promises ofeducational courses as a recruiting incentive ex-cept where needed to compete;

That universities create new types of academicprograms for the mid-career updating of Federalemployees in administrative, professional, andscientific fields.

Off-Campus Centers

In numerous instances Federal agencies havebrought the universities to their employees throughthe establishment of "off-campus study centers" atFederal installations. There are at least 120 centersin operation. The universities generally use spaceand utilities provided by the agencies, and in somecases receive administrative support from the agencypersonnel or training staff. Practically all employee-students at these centers receive financial supportfrom their agencies for their educational endeavors.Professional staff members of the host organizationfrequently are employed by the universities as part-time faculty.

Obligated Service Agreements

Before an employee can be assigned to a univer-sity or other non-Federal educational institutionunder the Government Employees Training Act, hemust agree in writing to continue in the employ, ofhis agency at least three times the period of histraining. Thus if an employee attends a universityfull time for 9 months, he is obligated to serve inGovernment 27 months. If he seeks voluntarily toleave Government before this period is over, he mustrepay the Government for the out-of-pocket ex-pensesthat is, tuition, travel, books, and the like.He does not have to repay the salary he earned whileattending school.

The Task Force suggests that the Civil ServileCommission look into obligated service regulationsto determine whether they need revision and up-dating. For example, the Task Force suggests thatthe Commission use its delegated authority to grantexceptions to the requirement that employees whomove from one agency to another may be requiredto repay the costs of their education, to the samedegree as though they were leaving Government.This is not consistent with the concept that move-ment of employees between agencies is a valuablemeans of broadening employees. The Commission

might also pay special attention to the provisioncalling for recovery from a man's estate of suchcosts.

Recommendation

The Task Force recommends:That the Civil Service Commission modify the

stringency of requirements for obligated servicefor:

(1) Employees who move from one Federalagency to another; and

(2) Estates of deceased employees.

Technical Education

Institutions for technical education have receivedconsiderable assistance from the Federal Govern.,ment through the National Defense Education Actof 1958. In recognition of the growing importanceof this type of education, the Vocational EducationAct of 1963 made the support program a continuingone and provided for increased funds.

By 1966, a total of approximately 225,000 tech-nical students were enrolled in an estimated 900 in-stitutions, an increase of more than 200 percentsince 1960. More than 130,000 of these studentswere employed persons taking courses to upgradetheir skills. The balance, 95,000, were taking pre-paratory courses.

Training New Tedaticians

Federal officials should take positive steps to makegood use of this growing resource. Working rela-tionships should be established with appropriate,competent institutions to help them to prepare theirstudents for employment in the Government. Ifthis is to be done adequately, Federal officialsshould:

Identify their recruiting needs for persons withpreparatory technical trainingAssess skills, knowledge, attitudes and workhabits that a technical training institutioncould and should provide students before em-ployment

Assist technical training institutions in a con-sultant capacity to design appropriate coursesMake job openings known to students duringand after attending such courses

Once such a relationship has been established,agencies may wish to use such institutions for pre-paratory training of unskilled Federal employees

51

who aspire to move up to technician jobs. Recom-mendations on technical education are given inchapter six.

Conclusions

As citizens become more and more educated andeducational institutions teach more and more ad-

vanced subjects, the Federal recruiting, training,and education pattern must change to fit the newkinds of recruits and the new educational systems.

The Task Force urges all executives and managersto keep up with this dynamic situation and take ad-vantage of it to insure a steadily improving serviceto the public,

Chapter Nine

Planning, Programming and Operating

So far, this Report has analyzed trenchant ques-tions of policy and methodologywho should betrained, where the training should be conducted,and how. There remain obstinate problems in get-ting these things done. Policy and methodologysteer programs. Administrative processes initiateand power them. This chapter reviews suchprocesses as planning, programming, budgeting andoperating programs of training and education.

Competition for Resources

All programs compete for the precious resourcesof men, money, and materials. Training and edu-cation compete with demands for additional profes-sional employees, more technicians, more promo-tions, increased library funds, and bigger computers.Those who would support training face questions attwo levels: (1) how much should they allot fortraining and education; and (2) what are the train-ing priorities among organizations, occupations,and employees?

PPBS

The approach commonly taken is to identifytraining needs and to present these at' udget time.But other operations have needs also. Those whoration the limited resources must estimate thecontribution each recipient makes to the reachingof the agency's goals. So, fundamentally, the firstorder must be to set agency goals clearly, determinehow those goals, both immediate and long range,can best be achieved, and identify the contributionof each operation including training and educa-tion, to goal achievement. With values establishedfor the relative amounts of time and money to beallotted, then managers must determine the priorityof needs in training and education. These stepsare consistent with and part of Government's plan-

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ning-programming-budgeting system, called PPBS.Initiated in the Department of Defense, it was ex-tended to all departments by the President in 1965.Today and tomorrow, training and education mustcompete within the PPBS system for its share ofresources.

Requirements of PPBS

The Bureau of the Budget has directed agenciesto maintain a comprehensive multiyear programand financial plan which will be systematicallybrought up to date. To accomplish this, agenciesmust develop :

(1) Specific data for top management rele-vant to broad decisions;

(2) Concrete statements on objectives ofagency programs;

(3) Alternative objectives and alternative pro-grams to meet them;

(4) Evaluations of benefits of programs andcomparisons of their costs;

(5) Total estimates of program costs;(6) Multiyear reports on prospective program

costs and accomplishments; and(7) Continuing, year-round review of program

objectives and results.

Support for Training

PPBS hammers at multiyear planning, compre-hensive programming, evaluation of results againstaccomplishments, and identification of all programcosts. Department of Defense experience is thatthe system brings out sharply the need for train-ing and produces top management support for fiscalplans which provide it. The Task Force, therefore,urges all civilian agencies to move aggressively torelate their training and education needs to the newsystem.

RecommendationsThe Task Force recommends:

TAO agency heads make clear to their careerand noncareer executives the importance of in-cluding programs for training and education inthe planning-programming-budgeting system pro-posals which are presented to them for approval;

That the Civil Service Commission and theBureau of the Budget work closely together inassisting agencies to relate their training and edu-cation programs to the planning-programming-budgeting system.

Program Objectives

PPBS starts with setting of program objectives;therefore training and education programs muststart with such objectives. This will require achange both in thinking and procedures for manyFederal agencies. The more progressive agenciesnow make training needs surveys--who needs whatkind of training, what needs there are in common,what course schedule is needed, and how much itwill cost. Too often this results in blurred focus onmanagement's immediate and long-range objectives.In PPBS, agency officials must start with programobjectives and then move to training needs surveys.For example :

Establish program objectivesGoal : put man into space.Subgoal : enable man to survive in space.

(2) PlanningFor up to five years ahead, identify

training needed for survival; review re-cruiting and assignment plans; analyzetraining needs of both new and experi-enced astronauts; estimate numbers ofnew recruits and experienced persons tobe trained; obtain data on existing andneeded training resources (people, books,institutions, equipment) .

ProgrammingInclude in program memoranda data

on costs and benefits for up to five yearsahead, of alternative programs designed toprovide training of different degrees ofcompleteness, and for different numbersand kinds of participants at differenttimes.

(4) BudgetingEstimate up to five years ahead opera-

ting expenditures (time and salaries oftrainees and instructors, costs of manuals,

( 1 )

(3)

54

etc.) and all capital expenditures (equip-ment, training rooms, etc.)

(5) Approval--(a) Prepare program and financial plan

for current year and up to five years ahead,(b) develop program memoranda stating as-sumptions, priorities, criteria for choices, anduncertainties, and (c) obtain approvals.

Forecasting

Task Force studies show that many small agenciesand a few large ones do not have adequate systemsfor identifying training needs; indeed, some haveno systems at all. These agencies tend to deal withtraining on a spur-of-the-moment basis or acceptwhat is available when the opportunity presentsitself. Haphazard training can waste both time andmoney. Another common planning deficiency inpresent training needs surveys is their too-narrowfocus on the presentcurrent employees and cur-rent ways of doing the work.

In PPBS, specialists on the system team up withtop-level program, personnel, and training officialsto produce data on future training and education.They should predict, for up to five years ahead,changes in technology, organization, appropriationsor functions that will affect the work done in theagency. They should also predict for up to fiveyears ahead the levels of knowledge, skill, and abilityof the employees who will staff the agency. Theseforecasts provide the basic assumptions from whichsound training and education plans, programs, andbudgets can grow.

Manpower Planning

In the space of this Report, it is possible to sketchonly the barest outline of the process by which PPBSdata can be translated into plans for training andeducation. Executives, managers, personnel offi-cers, and employee development officers will needto cooperate in order to assess:

(1) TurnoverRate of promotions at each level.Rate of separations at each level.Rate of recruitment from outside at eachlevel.

(2) Systems for advancementStandards for advancement.System of competition for advancement.

(3) Training needed for new recruitsEstimate of number of recruits needed

annually (see in chapter four, Bureau bfLabor Statistics forecast that in the next10 years professional, technical, and ad-ministrative employees will increase by225,000, and 675,000 replacements will beneeded) .

Estimate of numbers of applicants bytype of education and experience (see inchapter four, Bureau of Labor Statisticsprojection that college graduates will in-crease 50 percent in 10-year period) .

Forecast of amount, kind and durationof orientation and other initial training, onthe job and off.

Assessment of adequacy of present train-ing resources and need for additionalresources.

(4) Training needed to bring employees tofull journeyman performance

Estimate of number of employees to betrained annually by occupation and levelof knowledge and skills.

Forecast of amount, kind and durationof training on the job, in the agency, offthe job, and interagency.

Assessment of adequacy of present train-ing resources and need for additional re-sources.

Training needed to bring employees tomaster levels of professional and specialistperf ormance

Estimate of number of journeymen whocan be advanced within the agency.

Estimate numbers of journeymenwho must fie recruited from outside theagency and their levels of education andexperience.

Planning of major stages in advance tomaster level.

Forecast of amount, kind, and durationof training on the job, in in-service courses,interagency programs, and university orother education.

Running of cost-benefit studies of thedifferent kinds of training.

Assessment of adequacy of present train-ing resources and need for additionalresources.

(6) Training needed for leadership in super-visory, manager and executive posts

Proceed much as in steps 3, 4, and 5.

(5)

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RecommendationsThe Task Force recommends :

That agency heads direct appropriate subordi-nates to project their needs for professional, ad-ministrative, and technical employees and usethese manpower projections in planning trainingand educational programs.As the work of the agencies can be expedited and

duplication of effort avoided if the Civil ServiceCommission continues to give leadership and assist-ance in manpower planning, the Task Force furtherrecommends:

That the Civil Service Commission continue togive advice, assistance, and information to agen-cies on their manpower planning;

That the Civil Service Commission in its in-spections check on how agencies relate their man-power planning to training and education pro-grams.

Cost-Benefit AnalysisThis chapter has dealt so far with relating training

to agency objectives and planning. Much that waspresented in chapters five through eight deals withspecific programs for professional, administrative,and technical employees. It is appropriate here,therefore, to pull together some of the data on theadministrative processes involved in such program-ming. This is important because inquiries made bythe Task Force turned up not one example of cost-benefit analysis of training for professional, admin-istrative, and technical employees in non-defenseagencies. The conclusion is that such analysis isat least not common.

Department of Defense PPBS has demonstratedmany times that a careful analysis using all availablefacts will usually show great range in cost-benefitratios among different alternatives. An analyticapproach is superior to unguided intuition in pick-ing the best alternative.

Having reviewed objectives, manpower planning,and training needs, the next step is to compare theeffectiveness and the cost of alternative ways of pro-viding training or education to attain those ob-jectives. This assumes that PPBS has reached anagreed-upon set of overall agency objectives.

Variety of Program ChoiceThe executives or managers who undertake to

assess the alternatives should approach it in a prob-lem-solving spirita willingness to consider newways of training, to search widely for different ways

that others have tried, to seek to invent a better wayfor themselves, to be willing to experiment. Underthe Government Employees Training Act, manage-ment has a wide variety of choice. For example, inconsiderating alternatives for training economists,managers can look into : work with a noted retiredperson, detail to another Federal agency, assignmentto a research institute, placement in a course run by

a local government, study at a research library, aswell as the familiar choices of on-the-job instruction,agency classes, interagency training and universityprograms. The questions to be answered areWhat is the cost of each and what are the benefits,determined as objectively as possible?

Those who study cost-benefits need data on :Past experience and recommendationsPast costs and benefitsPresent alternatives :

What happens if nothing is done?Which is likely to contribute most to theobjectives?What are e'oert opinions about quality ofeach?What quantitative yardsticks can be devel-oped to measure results?What type of instructional staff producesoptimal results?What kind of employee benefits most?At what stage in his career will he benefitmost?What is minimum period for some benefit?What is length of time for optimal cost-benefits?What is cost-benefit from each kind of train-ing?

Other programs competing with this for moneyand time

Priorities to be assigned to competing programs

Evaluation and Programming

One of the most important inputs to program-ming is evaluation of past experience. Trainingand education under PPBS will soon feel pressuresfor more and better evaluation.

Only a few agencies reported to the Task Forcethat they were making serious efforts to determinethe value of their present programs. Task Forcemembers have concluded that the Civil ServiceCommission and the agencies need to move imme-diately into this important area.

56

Evaluations of training and education shouldshow how they have contributed to the attainmentof program objectives. Therefore, the time to planevaluation begins when a program objective isagreed upon.

For example, a program objectiveto build aninterstate highway systemproduces a subgoal, totrain civil engineers in new methods for bridge con-struction. At the same time this goal undergoesanalysis and translation into actio.i, the targets forevaluation should be analyzed and established.Thus, by the time a training recommendation isdrafted, say, for 2 weeks of lectures, 10 days offield trips, and 6 weeks of practical assignments, theprocedures for evaluation of each part should alsohave been written.

Recommendations

The Task Force recommends :That executives and managers take steps to

improve the programming of training and educa-tion, the study of its cost-benefits, and the eval-uation of its contribution to agency objectivesand performance;

That the Civil Service Commission conduct re-search and development on the evaluation oftraining and education and advise agencies onevaluation methodology;

That the Civil Service Commission in its in-spections improve its evaluations of agencytraining plans and programs.

Budgeting

Agencies now using PPBS find that training andeducation compete more successfully with otherprograms for funds and employee time than theyformerly did. Although almost all agencies needto improve 'their budgeting practices for develop-ment, the need is most evident in smaller ones.

Budgets should include

(1) Quantitative data such as the numbers ofemployees in each occupation to be trained, num-bers of courses and the number of sessions in each,the number of hours in classes or away from thejob, a comparison of in-service, interagency andoutside training, comparison of offices using in-dices of training activity, comparison of train-ing in small field activities with others, percentof each occupational group in training; and

(2) Fiscal data such as current cost of opera-tions, maintenance costs, capital outlays, researchand development expenditures, comparison of

costs of the different kinds of training by occu-pations and organizational divisions, and the allo-cations of charges to agency programs. If anagency charges for its services to others, thesereceipts should be shown. Training costs shouldinclude salaries of employees during time in train-ing, tuition, books, equipment, cost of employeedevelopment officers and lecturers.Agencies should request in their budgets not only

money for training but also employee time whichis usually calculated in man-years and sometimescalled "spaces." Thus, an agency might ask for100 spaces to produce a certain amount of work,plus an additional number of spaces to cover em-ployees in training away from the job.

Allocating Charges

Some agencies have expressed a desire forGovernment-wide budgeting for certain types oftraining and educationfor example, interagencytraining and residential training in non-Govermentinstitutions. The Task Force believes that costs fortraining should normally be charged to the pro-gram or function in which the individual serves.One simple rule of thumb would be to charge anemployee's training costs to the same appropriationwhich pays his salary.

This does not take care of all training. It maybe more convenient to obtain direct appropriationsfor certain training services. Some agencies hireyoung people who are placed in classes or rotatedthrough a series of jobs for significant periods oftime before they are assigned to a particular bureauor function. The Task Force suggests that even ifsuch an activity is carried separately in appropria-tions, the salary and training costs for the employeesinvolved should be allocated among the bureaus towhom they may be assigned in proportion to thesize of each bureau's total budget for salaries andexpenses. Training designed to broaden employ-ees for managerial or executive posts could be sim-ilarly charged.

Agencies that charge for training services whichthey provide to others are, of course, acting con-sistently with the principles set forth above.

Cost of Staff Leadership

Some employee development officers have ex-pressed reservations about the concept of chargingtraining costs to program functions. They fearthat while it will result in adequate funds forcourses and contracts it will short change important

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areas such as research and development, long-rangeplanning, and PPBS.

It is agreed that funds must be allotted to em-ployee development officers to permit them to plan,program, budget, control, locate new training re-sources, invent new methods, and provide data tomanagement. While the Task Force desires thatmoney and time spent on training be charged backto agency programs and missions which benefit, itis obvious that some costs are so general as to makethis charge-back difficult. Such costs might becharged in the same manner as general costs ofadministration.

RecommendationsThe Task Force recommends :

That agency heads direct appropriate offi-cials to provide better quantitative and fiscal dataon training and education such as the number ofemployees to be trained, the number of courses,time away from the job, capital outlays and re-search and development expenditures;

That managers and executives provide in theirbudgets both funds and man-years for trainingand education;

That agency heads charge the costs of trainingand education to the programs and functionswhich benefit from them; and

That the Civil Service Commission and theBureau of the Budget assist agencies to developsound program and financial plans for their train-ing and education.

Career Systems

This chapter has so far covered PPBS ratherextensively. This is deliberate and necessary iftraining and education are to be funded adequatelyand if time is to be allowed for training as it shouldbe. However, there are other administrative proc-esses which fuel sound developmental programs.

In its study of training for professional, admin-istrative, and technical occupations, the Task Forcewas impressed by the fact that career systems sim-plify orderly planning, programming, and budget-ing. Agencies that have them seem to have moreaggressive and comprehensive programs. Someagencies, such as the State Department, the Depart-ment of the Army, and the Internal Revenue Servicehave such systems for practically all of their pro-fessional, administrative, and technical employees.Many others have systems for some occupations inthese categories.

Elements of Career Systems

A career system has these elements :Recruitment in the expectation that the em-ployee will spend most of his working life in thesystemRecruitment prior to substantial work experi-enceA selection system that seeks out persons withlong-range potentialAssignments to develop both immediate andlong-range usefulnessA training and educational system which bothdevelops potential and prepares an employeefor work at a higher career levelSystematic identification of stages in a lifetimecareerStandards for advancement to stages havingmore important responsibilitiesProcedures for competition for advancement

Agencies that have career systems usually makemanpower projections regularly. It is much easierfor them to do this manpower planning than it isfor an agency which is not so organized. Careersystems now have an additional advantagetheyfit well into PPBS. The rewards obtained fromcareer systems go far beyond this. Agencies withcareer systems attract more and better qualifiedapplicants, create more readily a climate of growthand self development, are better able to hold on totheir best employees, and get more work of higherquality.

Recommendation

The Task Force recommends :That agency heads direct the establishment of

and guide the operation of career systems for theadvancement, training, and education of profes-sional, administrative, and technical employees( repeated from chapter three) .

Starting a Career System

It will take top-level guidance, time of careerexecutives and managers, participation by repre-sentatives from the occupational groups affected,and skilled staff work to get a career system goingwhere there is none now. Here is a list of thetypical steps involved :

Project training and education needs into thefuture, taking into account changes in mission,organization, and technology, and potentialsources of recruits

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Analyze occupations or other natural groupingsof employees to identify the patterns and stagesin their careersEstablish in consultation with skilled membersof appropriate career groupings, guidelines orstandards for effective performance at variousstages of a career, and identify the knowledgeand skills needed to attain effective, and supe-rior performance levelsProvide training and education required forsuccessful performance at various careerstagesMake known to employees typical careerpatternsIdentify, produce, and make available mate-rials which can be used in self developmentProvide career counseling with qualified coun-selors, on-the-job coaching by supervisors andmanagers, as well as classroom instructionPlan and make known to employees and theirorganizations the counseling, training, and edu-cation which is desirable at different stages ofcareersTrain managers and supervisors in effectivemeans for motivating self development and intechniques of on-the-job self developmentDevelop standards and traditions which resultin employees at one stage preparing themselvesfor the work of more advanced stages in theircareersDevelop systems which identify employees whocan benefit from formal training and educa-tion, select through competition those likely tobenefit most, then assign these employees toappropriate courses in the agency, in inter-agency programs, in universities, or otherappropriate institutionsCreate systems which provide feedback to pro-fessional, administrative, and technical em-ployees on performance, and coaching on howto overcome weaknesses and improve strengths

Develop systems for assignments which movecareer employees to ever more demanding jobswhich will deepen their knowledge, increasetheir skills, and broaden their understanding

Planning

Training and education can be more readilyplanned and more effectively carried out for occu-pations that have career systems. Employees, su-pervisors, and career counselors have guidelines for

planning individual careers. Executives, managers,and counselors can translate organizational needsinto plans for occupational and individual trainingand education,

Monitoring

After a career system is installed, managementshould monitor it constantly to make sure that it isindeed being used and that it continues to supportagency mission and objectives. Under PPBS, suchreviews can be readily and regularly made.

Employees will find that a career system has a tre-mendous impact on their advanceinent. Becauseboth management and employees have such a largestake in a career system, the Task Force suggests thatmanagement should consult employees and theirrepresentatives periodically about its provisions.

Goals for Individuals

The establishment of a career system should notcause its designers to lose sight of the individualsin it. In or outside such a system, growth is bestachieved through goal-setting and feedback on per-formance to an individual, particularly if his fel-low employees support the same or closely similargoals.

The Task Force suggests managers and super-visors use participative goal-setting, coupled withfrequent performance appraisal and coaching de-signed to facilitate organizational goal achievement.

Recommendations

The, agency's personnel system should supportthis managerial effort. The Task Force recom-mends :

That executives, managers, and personnel of-ficers adjust their personnel systems and buildtraditions which support employee self-develop-ment;

That executives, managers, supervisors, andpersonnel officers publicize broadly to em-ployees and employee organizations their train-ing and education opportunities anid counsel themon such programs.

Appraisal of Supervision

It follows quite logically that if supervisors shouldcounsel their subordinates then managers shouldcounsel supervisors and executives should counselmanagers.

264-239 0 - 67 - 5 59

RecommendationThe Task Force recommends

That agency performance appraisal systemsprovide specifically for review and feedback tosupervisors and managers on their staff develop-ment activities (repeated from chapter three) .

Staff Assistance to Managers

The administrative processes for training andeducation are complex. The work Cm them isspecialized. The iogicai conclusion is that man-agers and executives having organizations of over500 to 1,000 employees need staff assistance. Em-ployee development officers provide this aid.

Employee Development Officers

Employee development officers have widely vary-ing training and backgrounds. They are describedin a study for the Task Force which shows:

Fifty-one percent are in grades GS-12 andabove.

Fifty-nine percent entered Government atGS-6 or below (GS-5 is one common entrancelevel for college graduates) .

Twenty-nine percent have served in GS-3 ( aclerical grade) .

Twelve percent are women (in otter person-nel occupations, 29 percent) .

Forty percent are 50 years old or older, 27percent under 40.

Sixty-six percent have at least a bachelor's de-gree; 28 percent, master's.

A majority majored in education in college.One in four say they are developing them-

selves.Ninety-three percent intend to remain in the

Federal service; half would accept a job in anotheragency.

Half are members of a professional society.Thirty-eight percent have published articles or

books.

Future demands on employee development offi-cers will be greater than ever. They should be out-standing people capable of dealing with more com-plex program's, changing technologies, the explosionof knowledge, and a host of other problems whichwill tax them to the utmost.

Government needs training officers who are in-telligent, knowledgeable, and skilled individualswith imagination and resourcefulness, who have awillingness to adapt to a rapidly changing environ-

ment. These attributes coupled with experience,are essential if such officers are to be sufficiently in-fluential with managers at all levels.

Increased Demand

Surveys conducted by the Bureau of Labor Sta-tistics and the Civil Service Commission indicatethat perhaps as many as 3,000 new employee devel-opment officers will have to be brought into theFederal service during the next 10 years. Morethan half of these will be replacements of personnelwho will retire or leave the Government for otherreasons. The remainder will fill new positionsneeded to meet the increasing demands placed onthe employee development function.

The flow of new employee development officershas already begun and is picking up momentumslowly. In about five years this flow will probablyenlarge, as substantial numbers of them becomeeligible for retirement at approximately the sametime. Simultaneously, other occupations will becompeting for the same kind of talent.

Increased Development Needs

All of this means that special efforts will be neces-sary to maintain and improve the quality of em-ployee.development officers. Efforts to recruit high-quality candidates capable of meeting the demandsof the future will have to be stepped up. Addi-tionally, a more intensive effort to develop thenewcomers will be necessary, as they will be requiredto assume heavy responsibility more rapidly thandid their- predecessors.

Recommendations

The Task Force recommends :That agency heads review performance re-

quirements for employee development officersand prepare a five-year manpower plan which willsupply such officers with the education, training,and experience needed in the light of the agency'schanging programs and objectives;

That the Civil Service Commission assist agen-cies to establish recruiting requirements and at-tract persons to employee development officerpositions;

That the Civil Service Commission after reviewof agency and interagency training programs takesteps to see that adequate training and education

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is provided for the employee development officerof the futuN.

Recognition

The Civil Service Commission should establisha program designed to provide recognition to em-ployee development officers who have demonstratedtheir competence, and at the same time provide avaluable service to itself and other agencies. Eachyear, a panel of experts should select a small num-ber of distinguished employee development officersto serve as special training consultants for the Fed-eral service. These individuals could be made avail-able when needed to advise the Civil Service Com-mission or any Federal agency on training andeducation matters in the Federal service.

Information Systems

As the Task Force collected information on train-ing and education, it became quite evident thatcomprehensive data was hard to come by. Mostagency information systems on training and educa-tion are inadequate. Agency heads can carry outtheir responsibilities under the Government Em-ployees Training Act only if they have readily ac-cessible and current data that permit sharp analysisand sound decisions.

The data now collected for the President andfor the Congress are also inadequate. The CivilService Commission has the authority to obtainsuch data and to counsel agencies on the improve-ment of their own information systems.

The kinds of data required have been discussedearlier in this chapter. Action should be taken toput the information system on a sound footing.

Recommendations

The Task Force recommends :That the Civil Service Commission with agency

cooperation design a new reporting system fortraining and education in the Federal service; and

That agency heads make substantial improve-ments in their information systems for trainingand education in order to provide readily access-ible and current data to management at all levelsof the organization.

Small Field Activities

The Task Force's concern with the lack of train-ing for employees located in small units, especially

those with 200 employees or less outside of Wash-ington, was made clear in chapters five, six, andseven.

Recommendation

The Task Force recommends,:That the Civil Service Commission in its in-

spections pay special attention to the training andeducational opportunities available to profes-sional, administrative, and lechnical employees insmall field units.

A Special Problem

The Task Force's attention was drawn to a pro-posal for the revision of Internal Revenue Serviceregulations which would adversely affect Govern-ment employees, especially those going to long-term

61

training. The new regulations would tax the valueof training in tion-Federal institutions if it preparedor ena'oled an employee to perform a different job.This is often the goal of long-term trainingto pre-pare a specialist for a managerial position, to traina mechanical engineer to fill a naval architect joblong vacant, to qualify a nuclear physicist to becomea reactor safety specialist. This type of employee-sponsored training is not just good employee rela-tions, it is a grim necessity.

Recommendation

The Task Force recommends :That the Secretary of the Treasury act to pro-

tect the investment of Government and em-ployees in training by excluding from income ofFederal trainees payments made by the Govern-ment to non-Federal facilities for their instruction.

Chapter Ten

Authority and Responsibilities

The Task Force approached the division of au-thority and responsibilities for operations under theGovernment Employees Training Act in two quitedifferent ways. First, its staff asked agency officialsfor suggestions for changing the present system.Second, it considered what changes would be neededto put its recommendations into effect.

Agency and Commission officials report that theGovernment Employees Training Act, passed in1958, permits the President and agency heads toestablish needed training and education programs.The Task Force found that all of its recommenda-tions can be implemented under the present legisla-tion. The powers and authorities of the Act arebroadly conceived and broadly stated. The TaskForce concludes that no new legislation is neededbut executive action is needed to make more effec-tive use of its provisions.

Finding

The Task Force has no recommendation to makeon new legislation for training and education forprofessional, administrative, and technical em-ployees.

Congressional Employees

The Congress is now considering extending i heGovernment Employees Training Act to its ownemployees. In view of the success of the ExecutiveBranch with this legislation, this is a good move.

Responsibilities Under the Act

A summary of the division of responsibilities fortraining and education is given in an appendix tothis chapter. Major responsibility for supervisionand control is placed by the Act on the President.Responsibility for training operations is placed on

62

the heads of agencies. The Civil Service Commis-sion, as a result of delegations of authority bothfrom the President and the Act, has wide latitude.It can and has issued regulations. It can exceptgroups of ..::.,iployces from the Act or bring themback. It can grant waivers from certain restric-tions in the Act. It inspects training activities andmakes recommendations for improvement, annuallycollects data on training, and provides interagencytraining services in both Washington and the field.

The pattern is one quite consistent with currentthinking about the management of large businessand governmental organizations. The Commissionsets overall guidelines but leaves the details of coursemanagement and on-the-job instruction to agencyofficials.

Agency Delegations

A study for the Task Force reviewed the patternof agency delegations. Agency heads in generalacted cautiously in the early days of the TrainingAct. Some have not updated their deputations toreflect and put to advantage the greater experienceof their staffs. The Task Force suggests that presentdelegations on professional, administrative, andtechnical training be reviewed and revised with ob-jectives such as these :

That agency heads place responsibility on man-agers and supervisors for continuing on-the-jobinstruction of their subordinates;That they place responsibility for selection andassignment to in-service training on managersabove the first line of supervision, but as closeto it as possible;That they place responsibility for short-termtraining or evening courses in non-Federal fa-cilities in the hands of managers (a) who can-not only insure that the training meets agency

priorities and furthers agency objectives, but,(b) who are also high enough in the hierarchyto distribute available training resources withreasonable equity among employees in the sameoccupations in the same geographic area;That they place responsibility for residentialand full-time training which takes an employeeaway from his job for three or more weeks in thehands of managers equivalent to regional di-rectors or bureatz directors, who can carry outagency policies and at the sa4 ,e time have theauthority to commit funds to such training.(Managers at lower levels often seem morereluctant to spare men from jobs; hence therecommendation that a man removed from theday-to-day supervision of units and sectionssupport this kind of training) .

The pattern is to delegate as low in the organiza-tion as possible, yet get needed training for profes-sional, administrative, and technical employeescarried out. Task Force studies seem to show thatthe more expensive the training and the longer ittakes, the more it needs a push from higher man-agement levels.

Delegation of Executive Training

It is always a problem to free executives for train-ing off the job. The Task Force repeats a recom-mendation made earlier: agency heads should des-ignate a high-ranking official to activate an execu-tive development program and provide resources toimplement it. Career executives are remarkablybusy and often made to feel that they should nottake vacations or be off the job for more than a fewdays at a time. Yet they too need occasionalbreaksto rethink their jobs, to explore with peersmeans for becoming more effective, to broaden theirhorizons to become better attuned toward policiesand programs of the President and agency heads.The agency head or his alter ego will have to sup-port such time for training at the proposed Gov-ernment-conducted, residential program for execu-tives or at other full-time programs.

Agency Policies

The pattern of delegations should require carry-ing out major administration policies for equaltreatment of persons regardless of race, creed, color,nationality, or sex. Assignments for training, at-

63

tendance at in-service training courses, and supportin educational courses are all shared investments ofgreat value to employees The needs of the orga-nization should be paramount in determiningpriorities for training or education and what kindsare to be sponsored, but the determination as to whoshould go should be by fair competition on the basisof merit.

The authorities granted should take into accountthe need for retraining persons affected adversely byreductions-in-force and relocation of work.

Recommendation

The Task Force recommends :That agency heads review now their delega-

tions for training and education of professional,administrative, and technical employees and re-vise them to provide:

(1) Stimulus to active, continuing trainingand education;

(2) Authority for management to take andget prompt action in accordance with Govern-ment and agency policies and procedures; and

(3) Evaluations and controls which flagneeded changes or remedial actions.

Bureau of the Budget's Responsibilities

The Bureau of the Budget through its bulletinsand advice to agencies plays an important part inshaping agency programs and budgets which inturn affect training and education. It is also in-fluential in guiding Presidential decisions on suchmatters.

The Task Force is of the opinion that budgetexaminers and others at the Bureau can do much tofocus agency attention on improved training andeducation, especially through PPBS. This shouldresult in better long-range planning of employeedevelopment.

Recommendation

The Task Force recommends:That the Director., Bureau of the Budget, in

budget reviews and analyses of management andorganization, check on the adequacy of agencyfunds and man-years for training and educationleading to improved public service, efficiency, andeconomy.

Civil Service Commission Responsibilities

The Task Force finds that the Civil Service Com-mission has effectively used the authority in theGovernment Employees Training Act to conductinteragency training. The courses which it has of-fered in Washington, in regional centers, and in itstwo Executive Seminar Centers have been fine, in-deed. The Commission has carried on these activi-ties through sharing the costs of the training withthe agencies.

The Task Force finds that while the Commis-sion's interagency training program has grownapace, its other services have remained inadequate.The time has come to redress the balance.

Recommendation

The Task Force recommends :That the President direct the Civil Service

Commission to plan and promote the develop-ment, improvement, coordination, and evaluationof Federal civilian employee training programs.The most important changes for the future are

( 1) somewhat different patterns of delegation oftraining authority in a number of agencies, and ( 2)a correction of imbalance in the Commission's op-erations which will enable it to become in factthe President's staff advisor on the administrationof training and education for Federal employees.

Appendix to Chapter Ten

The Pattern of Responsibilities

Responsibilities of the President under the Gov-ernment Employees Training Act :

Supervise and control training and educationin all departments and agenciesSupervise and control the Civil Service Com-missionDesignate exceptions from the actDesignate Presidential appointees to be trainedAct on noncompliance with law or regulationsApprove reports to the Congress

Responsibilities of the Bureau of the Budgetrelated to training :

Improve management and organizationMonitor planning, programming and budgetingInform the President on program progressApportion appropriationsIssue regulations on absorption of training costsRegulate travelIssue regulations on reduction of payments re-ceived from training awards from non-Govern-ment organizations

Responsibilities of the Civil Service Commissionrelated to training:

Promote, coordinate and facilitate trainingIssue regulations on training and educationAdvise and assist departments and agenciesMake training information availableInspect training activitiesEvaluate personnel management in Federalagencies

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Conduct studies on personnel management andtake action to improve it or recommend actionto the PresidentDirect Government-wide recruiting and ex-amining programsExcept departments or employees from provi-sions of the ActWaive controls on non-Government trainingRegulate acceptance of training awards fromnon-Government organizationsMaintain a specialized personnel managementlibraryStandardize basic personnel recordsReport on Federal training and education tothe President and the Congress

Responsibilities of a department related to train-ing :

Determine training needsEncourage self-developmentEstablish and operate needed training pro-gramsDetermine kinds of training to be provided(Note: this is so specific that the Commissioncannot regulate types, methods, or details ofintra-departmental training)Assign employees to trainingDetermine how training will be financed

Establish appropriate administrative controlsReport to the Commission on training and edu-cation

Chapter Eleven

Next Steps

A Task Force collects data, consults experts,examines its members' experiences, and producesrecommendations which hopefully will bring aboutsignificant change for the better. Recommenda-tions are hard enough to come by, but implementa-tion is even more difficult, for this can be done only ifexecutives, managers, supervisors, and employeesare moved to transform paper plans into opera-tional realities. This chapter is concerned with thesteps to implement the recommendations of theTask Force.

Executive Order

The findings and the recommendations in thisReport make clear that much can be done to im-prove Federal training for professional, administra-tive, and technical employees. The first step is toestablish a clear, basic policy on the direction thatthis improvement should take. The Task Force is ofthe opinion that the President should revoke Execu-tive Order 10800, which in 1959 implemented theGovernment Employees Training Act, and issue anew one.

Recommendation

The Task Force recommends :That the President issue an Executive Order

which establishes basic policy for improvement ofthe public service through maximum exploitationof better training and education, taking into ac-count productive new practices in industry andGovernment.

Presidential Directive

A policy statement covering large agencies andsmall, concentrated and dispersed, miltiary and ci-vilian, must necessarily be stated in broad principles.When an Executive Order is issued, each agency

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head with top subordinates will need to translate itinto programs fitting the organization's structure,its employees, and their occupations. Plans willneed to be worked out to initiate changes in presentprograms or establish new ones. Instructions ad-dressed to these initial problems would not belongin an Executive Order.

The Task Force suggests that the President setguidelines for the initial actions needed to put thenew Executive Order into effect. This might bedone through memoranda addressed to the agencyheads.

Task Force Report

As the Presidential directives will be concernedwith broad, overall policy, agency heads should beasked to establish concrete programs to improvetraining and education of professional, administra-tive, and technical employees. In this task, theyshould get help from the Civil Service Commission.The Task Force suggests that the Commission assistagency officials to determine priorities and issue bul-letins or other publications which would developfurther the proposals of this Report.

Recommendations

The Task Force recommends :That the President ask agencies to review the

Task Force Report and periodically provide theCivil Service Commission statements on theirproress in implementing it;

That the President ask the Civil Service Com-mission to provide agencies advice on implement-ing this Report both in writing and through con-sultations.

Funds for Commission

In chapter ten, the Task Force recommended thatthe Commission be directed to increase its advisory

and technical services to agencies and provide morestaff services on training and education to the Presi-dent. This can be done only if funds are providedfor staff and operational costs.

Recommendation

The Task Force recommends:That the Civil Service Commission seek and

that the President and the Congress provide:

(1) Resources for staff assistance to thePresident on training and education; and

(2) Resources for Government-wide coordi-nation, information-analysis, advice, assistance,and leadership in the field of career systems,training, and education.

With these resources, the Commission should beable to help agencies, as proposed in chapter ten, insetting up sound systems for planning, program-ming, and budgeting of training, and for evaluatingtheir contributions to efficient and effective agencymanagement.

Other Groups

As the Task Force examined post-entry trainingand education for professional, administrative, andtechnical occupations-27 percent of the total Fed-eral employmentit was obvious that the recom-

mendations in many instances would not be fullyapplicable to other occupational groups.

Recommendation

The Task Force recommends :That the President direct the Civil Service

Commission to coordinate and initiate withagency cooperation studies of training and edu-cation needed for major occupational groups notcovered in this Report.

Conclusion

Project Hindsight, a study of 17 American weap-ons systems, concludes that it takes roughly a decadeto carry out the research that leads to signal inno-vation. For some Federal agencies, the Govern-ment Employees Training Act was a signal inno-vation. Most agencies have experimented with itand many have used it moderately well. It is thehope of this Task Force that before the 10th anniver-sary of the Government Employees Training Act, allagencies will be traveling the broad, enabling ex-pressways it opens up to smooth, rapid professional,administrative, and technical training and educa-tion; and will be making good time toward thewell-marked destination : improved public service.

Acknowledgements

The Task Force received help from many sources,inside Government and out, and is grateful to every-one who provided information, especially those whoprepared major studies for the deliberations that ledto this Report. Papers are listed according to thesubject matter of chapters.

Chapter TwoSHARING AN INVESTMENT

Dr. Marvin H. Berkeley, Corporate Personnel Director,Texas Instruments, Inc., and Task Force Member.A note to the Presidential Task Force on CareerAdvancement.

Chapter FourA FORECAST

U.S. Department of Labor. Bureau of Labor Statistics.EacAors.. Affecting Future Education and TrainingNeeds in the Pe' derarGovernment.. Sponsor: Dr.Arthur lg. Itcls, Commissioner. Project Director:lloward Stimbier, 4ecial- Assist4nt :to the Director.

Chapter Fiver-DpVELOPMENT FOR ADMINISTRA-TION .

U.S. Department of the Treasury. rftternal RevenueService. !.: 6: : !. .66

Training for Administration. Spoisor and ProjectDirector : 1dward P.- Preston; -Aisistant Commis-sioner for Administration. Project Co-Director:George T. Reeves, Jr., Director of Training Division.

U.S. Civil Service Commission. Office of Career De-velopment.

The Federal Executive Institute. Sponsor: J. Ken-neth Mulligan, Director. Project Director: WilliamT. McDonald, Deputy Director.

U.S. Department of the Treasury. Internal RevenueService. Southwest Region.

Management Development. B. Frank White, Com-missioner.

U.S. Department of State.ACORD, Organizational Development in the De-partment of State. Hon. William J. Crockett, Dep-uty Under Secretary for Administration.The Foreign Service Institute. Dr. Howard Sol-lenberger, Associate Director, the Foreign ServiceInstitute.

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American Telephone & Telegraph Co.Statement on the Bell System Approach to ManagerTraining and Development. John W. Kingsbury,Assistant Vice President.

Dr. Donald C. Stone, Dean. Graduate School of Pub-lic and International Affairs, the University ofPittsburgh.

Career Development for Administrative and Profes-sional Personnel to Serve an Urban America.

Chapter SixDEVELOPMENT FOR SPECIALIZA-TION

U.S. Department of Commerce. National Bureau ofStandards.

Training for Specialization. Sponsor: Dr. Allen V.Actin, Director. Project Director: Dr. Robert E.Ferguson, Chief, Physical Chemistry Division.

The President's Science Advisory Committee, Panel onScientific and Technical Manpower.

Meeting Manpower Needs in Science and Techol-ogy: Engineering Technician Training. Some dataUpdated by staff of Presidential Task Force onCareer Advancement.

Chapter SevenINTERAGENCY TRAINING

U.S. Department of Labor.Interagency Training. Sponsor: Hon. Leo R. Werts,Assistant Secretary for Administration. Project Di-rector : John J. Bean, Director, Office of EmplcyeeUtilization and Development.

Chapter EightEDUCATIONU.S. Department of Health, Education, and Welfare.

Office of Education.Federal Agency-University Relationships in Mid-Career Educational Programs. Sponsor: Dr. PeterMuirhead, Associate Commissioner for Higher Edu-cation. Project Director: Dr. Ward Stewart, Di-rector of Field Services.New Methods in Training and Education. Dr.Louis R. Bright, Associate Commissioner for Re-search.Education of Technicians for Career Advancement.Robert M. Knoebel, Acting Assistant Director, StateVocational Services Branch.

Dr. Harry L. Miller, Professor of Education. HunterCollege. The Evaluation of Education and Training.

U.S. Army.Military and Academic Education of Armed ForcesOfficers. Col. John S. Howland.

Dr. Earl H. De Long, Dean, School of Governmentand Public Administration, The American Uni-versity.

A Philosophy of Training and Education for theFederal Service.

Chapter NinePLANNING, PROGRAMMING ANDOPERATING

U.S. Department of the Air Force. Directorate ofCivilian Personnel.

A Staff Report on Evaluation of Training and Edu-cation in Federal Agencies. Sponsor: John A.Watts, Director. Project Director: Dr. Henry A.Duel, Chief, Personnel Research, Field ProgramsDivision.

Veterans AdministrationPlanning and Budgeting for Employee Training andEducation. Sponsor: Willis 0. Underwood, Chair-man, Administrator's Advisory Council. ProjectDirector : Dr. Manes Specter, Member.

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U.S. Department of Labor. Office of Employee Utili-zation and Development.

Education and Training in the Federal Government,1966. John J. Bean, Director.

U.S, Atomic Energy Commission.In-Service Education and Training in the FederalGovernment. Norman L. Linton, Director ofTraining.Education and Training in Government FieldOrganizations. Norman L. Linton.The Employee Development Officer. Norman L.Linton.

U.S. Civil Service Commission. Bureau of Policiesand Standards.

Sabbaticals and Extended Leave for Education.Study Director: Dr. 0. Glenn Stahl, Director.Use of Tests in Evaluation of Training. Dr. 0.Glena Stahl.

Chapter TenAUTHORITY AND RESPONSIBILI-TIES

Federal Aviation Agency.Training Authority. Sponsor: Robert H. Willey,Associate Administrator for Personnel and Training.Project Director: Benjamin F. Zvolanek, Chief,Training Division.

All of the papers and studies are available in the Library,United States Civil Service Commission, Washington, D.C.

ERIC Clearinghouse

AUG1 0 1970

on Adult Education

U. S. GOVERNMENT PRINTING OFFICE : 1967 0 - 264-239