[Analytical Perspectives]
[Dimensions of the Budget]
[23. Federal Employment and Compensation]
[From the U.S. Government Printing Office, www.gpo.gov]
This section provides information on civilian and military employment
in the Executive, Legislative, and Judicial branches. It also provides
information on personnel compensation and benefits.
Measuring Federal Employment
Civilian employment is measured on the basis of full-time equivalents
(FTEs). One FTE is equal to one work year (see OMB Circular A-11,
Section 32). Put simply, one full-time employee counts as one FTE, and
two half-time employees also count as one FTE. Data shown for military
personnel are average strengths, not FTEs. Military average strength is
calculated by averaging the monthly military personnel totals within a
fiscal year. Tables 23-1 and 23-3 show FTE data, while Table 23-2 shows
end strength or ``positions filled'' data as of September 30th.
Full-time equivalent data for the Department of Homeland Security FTEs
is provided on a three-year comparable basis from 2003 to 2005. Agencies
that transferred FTEs to DHS (e.g., Justice, Transportation, etc.) are
also shown on a three-year comparable basis.
As seen in Table 23-1, FTE data for the Office of Personnel Management
(OPM) shows a 75 percent increase between 2001 and 2005. These estimates
reflect a proposed transfer of DoD's Defense Security Service activities
beginning in 2004 and completed in 2005. This transfer is subject to
change. No decision has been made at this time for any transfer of
functions and employees however.
Table 23-3 shows a decrease of approximately 100 thousand military in
the Department of Defense between 2004 and 2005. This drop in the
estimate is expected as DOD normalizes its current over-manned status.
This will include the separation of Service members currently prevented
from separating due to DoD's ``Stop Loss'' policy.
Personnel Compensation and Benefits
Table 23-4 displays personnel compensation and benefits (in millions
of dollars) for all branches of Government, to include military
personnel.
Direct compensation of the Federal work force includes base pay and
premium pay, such as overtime. In addition, it includes other cash
components, such as geographic pay differentials (i.e., locality pay,
and special pay adjustments for law enforcement officers), recruitment
and relocation bonuses, retention allowances, performance awards, and
cost-of-living and overseas allowances.
In the case of military personnel, compensation includes basic pay,
special and incentive pays (including enlistment and reenlistment
bonuses), and allowances for clothing, housing, and subsistence.
Table 23-4 shows an approximately $5 billion increase in DoD military
direct compensation in 2004 attributed to a supplemental wartime
appropriation. This increase was required to compensate the large number
of reservists called to active duty in support of operations in Iraq and
Afghanistan.
Related compensation in the form of personnel benefits for current
employees consists of the cost to Government agencies (as an employer)
primarily for health insurance, life insurance, Social Security (old
age, survivors, disability, and health insurance) and contributions to
the retirement funds to finance future retirement benefits. Compensation
for former personnel includes outlays for retirement pay benefits, and
the Government's share of the cost of health and life insurance.
[[Page 350]]
Table 23-1. FEDERAL EMPLOYMENT IN THE EXECUTIVE BRANCH
(Civilian employment as measured by Full-Time Equivalents, in thousands)
----------------------------------------------------------------------------------------------------------------
Actual Estimate Change: 2001 to 2005
Agency ------------------------------------------------------------------------
2001 2002 2003 2004 2005 FTE's Percent
----------------------------------------------------------------------------------------------------------------
Cabinet agencies:
Agriculture.......................... 96.9 97.0 101.4 101.7 99.0 2.1 2.2%
Commerce............................. 36.7 34.9 34.5 36.1 38.2 1.5 4.1%
Defense-military functions........... 649.9 649.9 648.9 647.8 650.7 0.8 0.1%
Education............................ 4.6 4.5 4.5 4.5 4.5 -0.1 -2.2%
Energy............................... 15.6 15.8 15.6 16.1 15.9 0.3 1.9%
Health and Human Services............ 61.8 59.0 60.0 61.6 61.8 .......... 0.0%
Homeland Security \1\................ ........ 81.3 144.5 144.0 145.1 n/a n/a
Housing and Urban Development........ 10.1 10.0 10.4 10.6 10.5 0.4 4.0%
Interior............................. 68.7 70.3 71.0 71.4 71.9 3.2 4.7%
Justice.............................. 124.2 97.3 99.4 112.6 116.5 -7.7 -6.2%
Labor................................ 16.5 17.0 16.9 17.3 17.4 0.9 5.5%
State................................ 27.7 28.6 29.5 30.3 30.9 3.2 11.6%
Transportation....................... 63.4 61.2 59.0 58.5 58.6 -4.8 -7.6%
Treasury............................. 145.0 115.9 115.4 115.9 118.4 -26.6 -18.3%
Veterans Affairs..................... 206.9 208.9 211.8 218.3 219.7 12.8 6.2%
Other agencies--excluding Postal
Service:
Agency for International Development. 2.3 2.4 2.3 2.4 2.6 0.3 13.0%
Broadcasting Board of Governors...... 2.4 2.4 2.4 2.3 2.5 0.1 4.2%
Corps of Engineers--Civil Works...... 24.7 25.0 24.5 24.8 24.8 0.1 0.4%
Environmental Protection Agency...... 17.5 17.5 17.5 17.6 17.6 0.1 0.6%
EEOC................................. 2.7 2.8 2.6 2.5 2.6 -0.1 -3.7%
FDIC/RTC............................. 6.4 6.0 5.4 5.6 5.5 -0.9 -14.1%
FEMA \2\............................. 4.9 ........ ........ ........ ........ n/a n/a
General Services Administration...... 14.0 12.4 12.9 12.5 12.5 -1.5 -10.7%
NASA................................. 18.7 18.7 18.7 18.9 19.4 0.7 3.7%
National Archives and Records 2.6 2.8 2.8 2.9 2.9 0.3 11.5%
Administration......................
National Labor Relations Board....... 2.0 1.9 1.9 1.9 1.9 -0.1 -5.0%
National Science Foundation.......... 1.2 1.2 1.2 1.3 1.3 0.1 8.3%
Nuclear Regulatory Commission........ 2.8 2.8 2.9 3.1 3.1 0.3 10.7%
Office of Personnel Management \3\... 2.8 2.8 2.8 3.9 4.9 2.1 75.0%
Peace Corps.......................... 1.0 1.0 1.0 1.2 1.3 0.3 30.0%
Railroad Retirement Board............ 1.2 1.2 1.1 1.1 1.0 -0.2 16.7%
Securities and Exchange Commission... 2.9 3.0 3.1 3.6 3.9 1.0 34.5%
Small Business Administration........ 4.1 4.0 3.8 3.9 3.9 -0.2 -4.9%
Smithsonian Institution.............. 4.9 5.0 5.2 5.8 6.0 1.1 22.4%
Social Security Administration....... 62.7 63.1 63.1 65.0 68.7 6.0 9.6%
Tennessee Valley Authority........... 13.2 13.5 13.1 13.2 13.2 .......... 0.0%
All other small agencies............. 14.7 15.0 15.1 15.9 15.8 1.1 7.5%
------------------------------------------------------------------------
Total, Executive Branch civilian 1,737.8 1,755.9 1,826.2 1,856.1 1,874.5 136.7 7.9%
employment \4\........................
Subtotal, Defense...................... 649.9 649.9 648.9 647.8 650.7 0.8 0.1%
Subtotal, Non-Defense.................. 1,087.9 1,106.1 1,177.3 1,208.3 1,223.9 136.0 12.5%
----------------------------------------------------------------------------------------------------------------
\1\ Data is not comparable for all years because Department of Homeland Security FTEs are shown on a three-year
comparable basis starting in 2003.
\2\ FEMA realigned under the Department of Homeland Security.
\3\ Aproximately 900 FTE realigned to OPM from the Defense Investigative Service in FY 2003 and 1,800 in FY
2004.
\4\ Totals may not add due to rounding.
[[Page 351]]
Table 23-2. TOTAL FEDERAL EMPLOYMENT
(As measured by total positions filled)
----------------------------------------------------------------------------------------------------------------
Actual as of September 30 Change: 2001 to 2003
Description ----------------------------------------------------------
2001 2002 2003 Positions Percent
----------------------------------------------------------------------------------------------------------------
Executive branch civilian employment:
All agencies except Postal Service and Postal Rate
Commission:
Full-time permanent.............................. 1,595,801 1,632,663 1,646,688 50,887 3.2%
Other than full-time permanent................... 196,009 185,597 220,288 24,279 12.4%
----------------------------------------------------------
Subtotal....................................... 1,791,810 1,818,260 1,866,976 75,166 4.2%
==========================================================
Postal Service: \1\
full-time permanent................................ 661,452 645,758 634,709 -26,743 -4.0%
Other than full-time permanent..................... 186,418 165,933 164,539 -21,879 11.7%
----------------------------------------------------------
Subtotal......................................... 847,870 811,691 799,248 -48,622 -5.7%
----------------------------------------------------------
Subtotal, Executive branch civilian employment..... 2,639,680 2,629,951 2,666,224 26,544 1.0%
==========================================================
Military personnel on active duty: \2\
Department of Defense.............................. 1,385,116 1,411,634 1,434,377 49,261 3.6%
Department of Transportation (Coast Guard)......... 36,580 38,238 37,472 892 2.4%
Commissioned Corps (PHS, NOAA)..................... 6,027 6,221 6,200 173 2.9%
----------------------------------------------------------
Subtotal, military personnel..................... 1,427,723 1,456,093 1,478,049 50,326 3.5%
----------------------------------------------------------
Subtotal, Executive Branch..................... 4,067,403 4,086,044 4,144,273 76,870 1.9%
==========================================================
Legislative branch:
full-time permanent................................ 11,856 12,097 12,044 188 1.6%
Other than full-time permanent..................... 18,583 18,789 19,070 487 2.6%
----------------------------------------------------------
Subtotal, Legislative Branch..................... 30,439 30,886 31,114 675 2.2%
==========================================================
Judicial Branch:
Full-time permanent................................ 30,478 31,286 30,955 477 1.6%
Other than full-time permanent..................... 3,332 3,413 3,304 -28 -0.8%
----------------------------------------------------------
Subtotal, Judicial Branch........................ 33,810 34,699 34,259 499 1.5%
==========================================================
Grand total \3\...................................... 4,131,652 4,151,629 4,209,646 77,994 1.9%
==========================================================
ADDENDUM
Executive branch civilian personnel (excluding Postal
Service):
DOD civilians - Military functions................. 647,048 644,817 636,454 -10,594 -1.6%
All other executive branch......................... 1,144,762 1,173,443 1,230,522 85,760 7.5%
----------------------------------------------------------
Total............................................ 1,791,810 1,818,260 1,866,976 75,166 4.2%
----------------------------------------------------------------------------------------------------------------
\1\ Includes Postal Rate Commission.
\2\ Excludes reserve components.
\3\ Includes Summer Aides, Stay-in-school, Junior Fellowship, Worker-Trainee Opportunity, and disadvantage youth
programs.
[[Page 352]]
Table 23-3. TOTAL FEDERAL EMPLOYMENT
(As measured by Full-Time Equivalents)
----------------------------------------------------------------------------------------------------------------
Estimate Change: 2003 to 2005
Description 2003 --------------------------------------------
Actual 2004 2005 FTE's Percent
----------------------------------------------------------------------------------------------------------------
Executive branch civilian personnel:
All agencies except Postal Service and Defense....... 1,177,270 1,208,297 1,223,875 46,605 4.0%
Defense-Military functions (civilians)............... 648,891 647,807 650,665 1,774 0.3%
--------------------------------------------------------
Subtotal, excluding Postal Service................. 1,826,161 1,856,104 1,874,540 48,379 2.6%
Postal Service \1\................................... 777,928 773,958 759,244 -18,684 -2.4%
--------------------------------------------------------
Subtotal, Executive Branch civilian personnel...... 2,604,089 2,630,062 2,633,784 29,695 1.1%
========================================================
Executive branch uniformed personnel: \2\
Department of Defense................................ 1,496,030 1,466,900 1,392,000 -104,030 -7.0%
Department of Transportation (Coast Guard)........... 39,219 39,874 40,259 1,040 2.7%
Commissioned Corps................................... 6,548 6,688 6,695 147 2.2%
--------------------------------------------------------
Subtotal, uniformed military personnel............. 1,541,797 1,513,462 1,438,954 -102,843 -6.7
--------------------------------------------------------
Subtotal, Executive Branch......................... 4,145,886 4,143,524 4,072,738 -73,148 -1.8%
========================================================
Legislative Branch: \3\ Total FTE \3\.................. 32,080 32,385 32,813 733 2.3%
Judicial branch: Total FTE............................. 33,568 33,417 34,502 934 2.8%
========================================================
Grand total........................................ 4,211,534 4,209,326 4,140,053 -71,481 -1.7%
----------------------------------------------------------------------------------------------------------------
\1\ Includes Postal Rate Commission.
\2\ Military personnel on active duty. Excludes reserve components. Data shown for military are average
strengths, not FTEs.
\3\ Actual 2002 FTE data not available for the Senate (positions filled were used).
[[Page 353]]
TABLE 23-4. PERSONNEL COMPENSATION AND BENEFITS
(In millions of dollars)
----------------------------------------------------------------------------------------------------------------
Change: 2003 to 2005
Description 2003 2004 2005 ----------------------
Actual Estimate Request Dollars Percent
----------------------------------------------------------------------------------------------------------------
Civilian personnel costs:
Executive Branch (excluding Postal Service):
Direct compensation:
DOD--military functions.......................... 37,006 37,569 38,575 1,569 4.2%
All other executive branch....................... 75,132 80,860 84,873 9,741 13.0%
--------------------------------------------------------
Subtotal, direct compensation.................. 112,138 118,429 123,448 11,310 10.1%
Personnel benefits:
DOD--military functions.......................... 9,287 9,603 10,712 1,425 15.3%
All other executive branch....................... 29,980 31,878 32,821 2,841 9.5%
--------------------------------------------------------
Subtotal, personnel benefits................... 39,267 41,481 43,533 4,266 10.9%
--------------------------------------------------------
Subtotal, executive branch................... 151,405 159,910 166,981 15,576 10.3%
========================================================
Postal Service:
Direct compensation................................ 37,145 38,260 38,612 1,467 3.9%
Personnel benefits................................. 12,079 12,643 13,215 1,136 9.4%
--------------------------------------------------------
Subtotal......................................... 49,224 50,903 51,827 2,603 5.3%
========================================================
Legislative Branch: \1\
Direct compensation................................ 1,638 1,752 1,850 212 12.9%
Personnel benefits................................. 411 465 489 78 19.0%
--------------------------------------------------------
Subtotal......................................... 2,049 2,217 2,339 290 14.2%
========================================================
Judicial Branch:
Direct compensation................................ 2,341 2,475 2,683 342 14.6%
Personnel benefits................................. 636 660 756 120 18.9%
--------------------------------------------------------
Subtotal......................................... 2,977 3,135 3,439 462 15.5%
--------------------------------------------------------
Total, civilian personnel costs.................. 205,655 216,165 224,586 18,931 9.2%
========================================================
Military personnel costs:
DOD--Military Functions:
Direct compensation................................ 71,868 77,344 68,461 -3,407 -4.7%
Personnel benefits................................. 32,023 36,101 34,655 2,632 8.2%
--------------------------------------------------------
Subtotal......................................... 103,891 113,445 103,116 -775 -0.7%
========================================================
All other executive branch, uniformed personnel:
Direct compensation.................................. 2,175 2,297 2,487 312 14.3%
Personnel benefits................................... 515 560 633 118 22.9%
--------------------------------------------------------
Subtotal........................................... 2,690 2,857 3,120 430 16.0%
--------------------------------------------------------
Total, military personnel costs \2\.................. 106,581 116,302 106,236 -345 -0.3%
========================================================
Grand total, personnel costs \3\....................... 312,236 332,467 330,822 18,586 6.0%
========================================================
ADDENDUM
Former Civilian Personnel:
Retired pay for former personnel..................... 51,405 54,002 56,171 4,766 9.3%
Government payment for Annuitants:
Employee health benefits......................... 6,674 7,358 8,046 1,372 20.6%
Employee life insurance.......................... 34 35 35 1 2.9%
--------------------------------------------------------
Total Former Civilian Personnel........................ .......... ......... ......... .......... .........
========================================================
Former Military personnel:
Retired pay for former personnel..................... 35,396 37,182 38,333 2,937 8.3%
Military annuitants health benefits.................. 4,583.00 4,903.00 5,283 700 15.3%
----------------------------------------------------------------------------------------------------------------
\1\ Excludes members and officers of the Senate.
\2\ Excludes reserve components not on active duty.
\3\ Senior Executive Service (SES) compensation levels are still unsettled.
[[Page 355]]
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CURRENT SERVICES ESTIMATES
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