[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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