[Analytical Perspectives]
[Dimensions of the Budget]
[24. Federal Employment and Compensation]
[From the U.S. Government Printing Office, www.gpo.gov]
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24. FEDERAL EMPLOYMENT AND COMPENSATION
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
For budgetary purposes, 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.
Tables 24-1 and 24-3 show FTE data, while Table 24-2 shows end strength
or ``positions filled'' data as of September 30th.
Significant Changes in Civilian Employment
Although immediate security requirements cause near-term increases in
Federal employment, the Administration continues its efforts to improve
government effectiveness and efficiency in order to better serve the
American people with a smaller Federal workforce. While current
projections show an increase in the number of employees in the Executive
Branch, it is expected that efforts to improve government effectiveness
and efficiency will result in a reduction in the number of Federal
government employees over the next four years.
The Department of Commerce grows 4,400 FTE between FY 2004 and FY 2006
due to increased workload associated with the American Community Survey
in the Bureau of the Census. The U.S. Patent and Trademark Office (PTO)
is also increasing personnel in an effort to reduce a large backlog of
patent and trademark submissions. The increase in PTO FTEs is fee
funded.
At the Department of Health and Human Services, an increase of over
2,800 FTEs between FY 2004 and FY 2006 is due to the following: 1)
Additional staff to provide actuarial, health administration, and
contracting expertise to support the implementation of the Medicare
Modernization Act (MMA) at the Centers for Medicare and Medicaid
Services; 2) Expanded staff at the Indian Health Service health care
facilities; 3) Increase in scientific research positions at the National
Institutes of Health; 4) Pre-market review of new drugs, medical
devices, animal drugs, and other products regulated at the Food and Drug
Administration (FDA) and the FDA Office of Drug Safety; and 5) Work
related to Medicare appeals and health information technology at the
Office of the Secretary.
Total FTEs for the Department of Homeland Security increase by six
percent between FY 2004 and FY 2006 as this new department's employment
settles into a more steady state. The new growth of 8,500 FTE is
primarily driven by increases in U.S. Customs and Border Protection
Officers, Border Patrol Agents, and Transportation Security
Administration screener personnel.
Department of Justice FTEs increased by 18 percent between FY 2004 and
FY 2006 due to increases in security-related programs. Growth of 18,100
FTE is largely driven by increases in the Federal Bureau of
Investigation, federal prison system, legal activities, Bureau of
Alcohol, Tobacco, Firearms, and Explosives, and the U.S. Marshals.
Department of State FTE increases are principally within their
diplomatic and consular programs, the Department's main operating
account. Total Department FTEs increase by over 600 between FY 2004 and
FY 2006. These new positions are for additional security personnel,
consular personnel to facilitate new visa security requirements,
staffing for new requirements overseas, such as Iraq, Sudan, and Libya,
and to strengthen reconstruction and stabilization capabilities.
The Office of Personnel Management's increases in FY 2005 and FY 2006
FTE, as compared to FY 2004, include the transfer of approximately 1,800
DOD's Defense Security Service investigative personnel to OPM.
The roughly 500 FTE increase reflected in the Smithsonian Institution
(encompassing the Smithsonian Institution, National Gallery of Art, John
F. Kennedy Center for the Performing Arts and the Woodrow Wilson Center
for International Scholars) between FY 2004 and FY 2006 primarily
reflect additional staff for security and facilities operations. Both
the National Gallery of Art and the Smithsonian Institution are working
to reduce the turnover associated with their respective security forces
and hire a force sufficient to accommodate today's homeland security
challenges. In FY 2005, the Smithsonian will continue to supplement its
security and facility operations staff to support the recent openings of
the National Museum of the American Indian on the National Mall and the
National Air and Space Museum's Steven F. Udvar-Hazy Center.
The Social Security Administration is projecting growth in hiring of
about 1,700 FTE between FY 2004 and FY 2006. The agency requires new
hires to meet its responsibilities in implementing the Medicare
prescription drug benefit. SSA is in charge of determining eligibility
for low-income subsidies for the drug benefit.
Significant Changes in Military Employment
As shown in Table 24-3, the Department of Defense estimate reduces
over 55,000 FTE by FY 2006. The Services continue to increase their use
of technology resulting in less military personnel requirements. In
addition, contracted labor is on the rise within the Services. Lastly,
personnel retention was previously high among those military members
with aircraft-related
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skills due to reduced hiring by the commercial airlines. However, the
Services anticipate this retention rate will decrease as the economy
continues to improve.
Personnel Compensation and Benefits
Table 24-4 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.
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.
Table 24-1. FEDERAL EMPLOYMENT IN THE EXECUTIVE BRANCH
(Civilian employment as measured by Full-Time Equivalents, in thousands)
----------------------------------------------------------------------------------------------------------------
Actual Estimate Change: 2002 to 2006
Agency ------------------------------------------------------------------------
2002 2003 2004 2005 2006 FTE's Percent
----------------------------------------------------------------------------------------------------------------
Cabinet agencies:
Agriculture.......................... 97.0 101.4 100.5 103.3 100.5 3.5 3.6%
Commerce............................. 34.9 34.5 34.6 37.9 39.0 4.1 11.7%
Defense--Military functions.......... 649.9 648.9 650.4 659.9 664.6 14.7 2.3%
Education............................ 4.5 4.5 4.4 4.5 4.4 -0.1 -2.2%
Energy............................... 15.8 15.6 15.1 15.9 15.8 .......... .........
Health and Human Services............ 59.0 60.0 59.3 62.3 62.1 3.1 5.3%
Homeland Security.................... 81.3 144.5 137.3 143.9 145.8 64.5 79.3%
Housing and Urban Development........ 10.0 10.4 10.2 10.0 9.9 -0.1 -1.0%
Interior............................. 70.3 71.0 70.7 71.0 70.9 0.6 0.9%
Justice.............................. 97.3 99.4 101.4 116.5 119.5 22.2 22.8%
Labor................................ 17.0 16.9 16.5 16.8 16.9 -0.1 -0.6%
State................................ 28.6 29.5 30.0 30.3 30.6 2.0 7.0%
Transportation....................... 61.2 59.0 57.3 57.4 57.7 -3.5 -5.7%
Treasury............................. 115.9 115.4 113.6 113.0 113.6 -2.3 -2.0%
Veterans Affairs..................... 208.9 211.8 218.7 221.9 218.1 9.2 4.4%
Other agencies--excluding Postal
Service:
Agency for International Development. 2.4 2.3 2.2 2.3 2.6 0.2 8.3%
Broadcasting Board of Governors...... 2.4 2.4 2.3 2.3 2.4 .......... .........
Corps of Engineers--Civil Works...... 25.0 24.5 23.5 23.5 23.5 -1.5 -6.0%
Environmental Protection Agency...... 17.5 17.5 17.3 17.6 17.6 0.1 0.6%
EEOC................................. 2.8 2.6 2.5 2.4 2.4 -0.4 -14.3%
FDIC/RTC............................. 6.0 5.4 5.3 5.2 4.9 -1.1 -18.3%
General Services Administration...... 12.4 12.9 12.6 12.7 12.2 -0.2 -1.6%
NASA................................. 18.7 18.7 18.8 19.4 19.0 0.3 1.6%
National Archives and Records 2.8 2.8 2.8 2.9 2.9 0.1 3.6%
Administration......................
National Labor Relations Board....... 1.9 1.9 1.9 1.9 1.8 -0.1 -5.3%
National Science Foundation.......... 1.2 1.2 1.3 1.3 1.3 0.1 8.3%
Nuclear Regulatory Commission........ 2.8 2.9 3.0 3.1 3.2 0.4 14.3%
Office of Personnel Management....... 2.8 2.8 2.8 4.1 5.0 2.2 78.6%
Peace Corps.......................... 1.0 1.0 1.1 1.2 1.2 0.2 20.0%
Railroad Retirement Board............ 1.2 1.1 1.1 1.0 1.0 -0.2 -16.7%
Securities and Exchange Commission... 3.0 3.1 3.6 3.9 3.9 0.9 30.0%
Small Business Administration........ 4.0 3.8 3.4 4.2 3.3 -0.7 -17.5%
Smithsonian Institution.............. 5.0 5.2 5.1 5.6 5.6 0.6 12.0%
Social Security Administration....... 63.1 63.1 63.9 64.2 65.6 2.5 4.0%
Tennessee Valley Authority........... 13.5 13.1 12.0 12.0 12.1 -1.4 -10.4%
All other small agencies............. 15.0 15.1 14.9 15.7 15.7 0.7 4.7%
------------------------------------------------------------------------
Total, Executive Branch civilian 1,755.9 1,826.2 1,821.1 1,871.2 1,876.8 120.9 6.9%
employment *..........................
Subtotal, Defense...................... 649.9 648.9 650.4 659.9 664.6 14.7 2.3%
Subtotal, Non-Defense.................. 1,106.0 1,177.3 1,170.7 1,211.3 1,212.2 106.2 9.6%
----------------------------------------------------------------------------------------------------------------
* Totals may not add due to rounding.
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Table 24-2. TOTAL FEDERAL EMPLOYMENT
(As measured by total positions filled)
----------------------------------------------------------------------------------------------------------------
Actual as of September 30 Change: 2002 to 2004
Description ----------------------------------------------------------
2002 2003 2004 Positions Percent
----------------------------------------------------------------------------------------------------------------
Executive branch civilian employment:
All agencies except Postal Service and Postal Rate
Commission:
Full-time permanent.............................. 1,632,663 1,646,688 1,662,990 30,327 1.9%
Other than full-time permanent................... 185,597 220,288 218,953 33,356 18.0%
----------------------------------------------------------
Subtotal....................................... 1,818,260 1,866,976 1,881,943 63,683 3.5%
==========================================================
Postal Service: \1\
Full-time permanent.............................. 645,758 634,709 609,579 -36,179 -5.6%
Other than full-time permanent................... 165,933 164,539 158,083 -7,850 -4.7%
----------------------------------------------------------
Subtotal....................................... 811,691 799,248 767,662 -44,029 -5.4%
----------------------------------------------------------
Subtotal, Executive branch civilian 2,629,951 2,666,224 2,649,605 19,654 0.7%
employment..................................
==========================================================
Military personnel on active duty: \2\
Department of Defense............................ 1,411,634 1,434,377 1,426,836 15,202 1.1%
Department of Transportation (Coast Guard)....... 38,238 37,472 40,230 1,992 5.2%
Commissioned Corps (HHS, NOAA, EPA).............. 6,221 6,200 6,357 136 2.2%
----------------------------------------------------------
Subtotal, military personnel................... 1,456,093 1,478,049 1,473,423 17,330 1.2%
----------------------------------------------------------
Subtotal, Executive Branch................... 4,086,044 4,144,273 4,123,028 36,984 0.9%
==========================================================
Legislative branch:
full-time permanent.............................. 12,097 12,044 11,614 -483 -4.0%
Other than full-time permanent................... 18,789 19,070 18,435 -354 -1.9%
----------------------------------------------------------
Subtotal, Legislative Branch................... 30,886 31,114 30,049 -837 -2.7%
==========================================================
Judicial Branch:
Full-time permanent.............................. 31,286 30,955 30,537 -749 -2.4%
Other than full-time permanent................... 3,413 3,304 3,324 -89 -2.6%
----------------------------------------------------------
Subtotal, Judicial Branch...................... 34,699 34,259 33,861 -838 -2.4%
==========================================================
Grand total \3\.................................. 4,151,629 4,209,646 4,186,938 35,309 0.9%
==========================================================
ADDENDUM
Executive branch civilian personnel (excluding Postal
Service):
DOD civilians--Military functions.................. 644,817 636,454 644,251 -566 -0.1%
All other executive branch......................... 1,173,443 1,230,522 1,237,692 64,249 5.5%
----------------------------------------------------------
Total............................................ 1,818,260 1,866,976 1,881,943 63,683 3.5%
----------------------------------------------------------------------------------------------------------------
\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.
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Table 24-3. TOTAL FEDERAL EMPLOYMENT
(As measured by Full-Time Equivalents)
----------------------------------------------------------------------------------------------------------------
Estimate Change: 2004 to 2006
Description 2004 --------------------------------------------
Actual 2005 2006 FTE's Percent
----------------------------------------------------------------------------------------------------------------
Executive branch civilian personnel:
All agencies except Postal Service and Defense....... 1,170,678 1,211,305 1,212,216 41,538 3.5%
Defense--Military functions (civilians).............. 650,441 659,889 664,569 14,128 2.2%
--------------------------------------------------------
Subtotal, excluding Postal Service................. 1,821,119 1,871,194 1,876,785 55,666 3.1%
Postal Service \1\................................... 755,260 740,974 729,395 -25,865 -3.4%
--------------------------------------------------------
Subtotal, Executive Branch civilian personnel...... 2,576,379 2,612,168 2,606,180 29,801 1.6%
========================================================
Executive branch uniformed personnel: \2\
Department of Defense................................ 1,430,607 1,404,918 1,375,250 -55,357 -3.9%
Department of Homeland Security (Coast Guard)........ 40,230 40,706 41,332 1,102 2.7%
Commissioned Corps................................... 6,357 6,503 6,515 158 2.5%
--------------------------------------------------------
Subtotal, uniformed military personnel............. 1,477,194 1,452,127 1,423,097 -54,097 -3.7%
--------------------------------------------------------
Subtotal, Executive Branch......................... 4,053,573 4,064,295 4,029,277 -24,296 -0.6%
========================================================
Legislative Branch: 3 Total FTE \3\.................... 31,764 32,240 32,737 973 3.1%
Judicial branch: Total FTE............................. 33,802 33,505 34,728 926 2.7%
========================================================
Grand total........................................ 4,119,139 4,130,040 4,096,742 -22,397 -0.5%
----------------------------------------------------------------------------------------------------------------
\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 2004 FTE data not available for the Senate (positions filled were used).
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TABLE 24-4. PERSONNEL COMPENSATION AND BENEFITS
(In millions of dollars)
----------------------------------------------------------------------------------------------------------------
Change: 2004 to 2006
Description 2004 2005 2006 ----------------------
Actual Estimate Request Dollars Percent
----------------------------------------------------------------------------------------------------------------
Civilian personnel costs:
Executive Branch (excluding Postal Service):
Direct compensation:
DOD--Military functions.......................... 39,139 40,139 41,758 2,619 6.7%
All other executive branch....................... 79,711 85,770 87,696 7,985 10.0%
--------------------------------------------------------
Subtotal, direct compensation.................. 118,850 125,909 129,454 10,604 8.9%
Personnel benefits:
DOD--Military functions.......................... 10,008 10,419 10,898 890 8.9%
All other executive branch....................... 32,627 34,332 34,902 2,275 7.0%
--------------------------------------------------------
Subtotal, personnel benefits................... 42,635 44,751 45,800 3,165 7.4%
--------------------------------------------------------
Subtotal, executive branch................... 161,485 170,660 175,254 13,769 8.5%
========================================================
Postal Service:
Direct compensation................................ 37,921 38,447 39,134 1,213 3.2%
Personnel benefits................................. 12,854 13,220 14,488 1,634 12.7%
--------------------------------------------------------
Subtotal......................................... 50,775 51,667 53,622 2,847 5.6%
========================================================
Legislative Branch: \1\
Direct compensation................................ 1,761 1,805 1,918 157 8.9%
Personnel benefits................................. 460 481 517 57 12.4%
--------------------------------------------------------
Subtotal......................................... 2,221 2,286 2,435 214 9.6%
========================================================
Judicial Branch:
Direct compensation................................ 2,494 2,604 2,799 305 12.2%
Personnel benefits................................. 682 728 807 125 18.3%
--------------------------------------------------------
Subtotal......................................... 3,176 3,332 3,606 430 13.5%
--------------------------------------------------------
Total, civilian personnel costs................ 217,657 227,945 234,917 17,260 7.9%
========================================================
Military personnel costs:
DOD--Military Functions:
Direct compensation................................ 75,729 67,137 69,103 -6,626 -8.7%
Personnel benefits................................. 32,517 34,930 37,377 4,860 14.9%
--------------------------------------------------------
Subtotal......................................... 108,246 102,067 106,480 -1,766 -1.6%
========================================================
All other executive branch, uniformed personnel:
Direct compensation.................................. 2,343 2,487 2,628 285 12.2%
Personnel benefits................................... 571 615 653 82 14.4%
--------------------------------------------------------
Subtotal........................................... 2,914 3,102 3,281 367 12.6%
--------------------------------------------------------
Total, military personnel costs \2\.............. 111,160 105,169 109,761 -1399 -1.3%
========================================================
Grand total, personnel costs........................... 328,817 333,114 344,678 15,861 4.8%
========================================================
ADDENDUM
Former Civilian Personnel:
Retired pay for former personnel..................... 53,412 56,896 59,883 6,471 12.1%
Government payment for Annuitants:
Employee health benefits......................... 7,326 7,831 8,401 1,075 14.7%
Employee life insurance.......................... 35 36 36 1 2.9%
--------------------------------------------------------
Total Former Civilian Personnel................
========================================================
Former Military personnel:
Retired pay for former personnel..................... 37,153 39,135 40,915 3,762 10.1%
Military annuitants health benefits.................. 5,197 5,887 6,254 1,057 20.3%
----------------------------------------------------------------------------------------------------------------
\1\ Excludes members and officers of the Senate.
\2\ Excludes reserve components not on active duty.