Department of Energy: Funding and Workforce Reduced, But Spending Remains
Stable (Letter Report, 04/24/97, GAO/RCED-97-96).

GAO provided information on changes in the Department of Energy's (DOE)
funding, spending (costs), federal workforce, and contractor workforce
between fiscal years (FY) 1994 and 1996. GAO did not verify the accuracy
of the financial data or data on the workforces; however, GAO shared its
results with DOE officials to obtain their agreement that the data
accurately reflected DOE's actual spending and the size of its
workforces.

GAO noted that: (1) overall funding, spending, and workforce reductions
occurred from FY 1994 to 1996; (2) however, budget cuts did not result
in commensurate reductions in spending; (3) DOE spent almost the same in
FY 1996 as it did in 1994; (4) while congressional funding decreased,
from $19.5 billion to $17.4 billion, or 11 percent, between those years,
spending only decreased from $20.4 billion to $19.9 billion, or slightly
over 2 percent; (5) DOE was directed by the Congress to use its
carryover balances of unspent funds from prior years; (6) thus, it has
recently been able to spend more than provided by its annual funding;
(7) furthermore, use of these carryover balances has resulted in DOE's
receiving less new funding during the last several years; (8) DOE's
overall federal workforce declined from 19,836 workers to 18,608
workers, or over 6 percent, and its contractor workforce declined from
136,192 workers to 109,242 workers, or about 20 percent; (9) about 50
percent of the reductions in the federal workforce occurred at
headquarters, while the other 50 percent occurred in DOE's field
offices; (10) even though overall reductions occurred, some programs had
increases in spending and in their federal workforce; (11) for example,
as the defense nuclear production facilities have been transferred to
the Environmental Program, spending has increased by $682 million, or
about 11 percent, between FY 1994 and 1996; (12) in addition, the
Environmental Program's federal workforce increased by 1,149 workers, or
56 percent; and (13) however, none of DOE's major programs had increases
in their contractor workforce.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  RCED-97-96
     TITLE:  Department of Energy: Funding and Workforce Reduced, But 
             Spending Remains Stable
      DATE:  04/24/97
   SUBJECT:  Federal downsizing
             Appropriated funds
             Reductions in force
             Labor force
             Contractor personnel
             Unexpended budget balances
             Budget cuts
             Budget outlays
IDENTIFIER:  DOE Strategic Alignment and Downsizing Initiative
             DOE Environmental Management Program
             DOE Civilian Radioactive Waste Program
             
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Cover
================================================================ COVER


Report to the Chairman, Subcommittee on Energy and Water Development,
Committee on Appropriations, House of Representatives

April 1997

DEPARTMENT OF ENERGY - FUNDING AND
WORKFORCE REDUCED, BUT SPENDING
REMAINS STABLE

GAO/RCED-97-96

DOE's Workforce and Spending

(308686)


Abbreviations
=============================================================== ABBREV

  DOE - Department of Energy
  FERC - Federal Energy Regulatory Commission
  FTE - full-time equivalent
  GAO - General Accounting Office
  PMA - power marketing administration

Letter
=============================================================== LETTER


B-276392

April 24, 1997

The Honorable Joseph M.  McDade
Chairman, Subcommittee on Energy
 and Water Development
Committee on Appropriations
House of Representatives

Dear Mr.  Chairman: 

In fiscal year 1996, the Department of Energy (DOE) had a $17.4
billion budget and a federal and a contractor workforce totaling
127,850 workers.  Like many other agencies, DOE has been reducing its
budget and workforce.\1

In a February 1996 report, we presented a baseline of DOE's fiscal
year 1994 financial and workforce data against which changes in the
agency can be measured.\2 Using that baseline, this report identifies
changes in DOE's funding, spending (costs), federal workforce, and
contractor workforce between fiscal years 1994 and 1996.  The
attached appendixes provide the details on these changes. 


--------------------
\1 Federal workers are reported by DOE as full-time equivalents
(FTE)--a personnel term that represents the number of hours worked
divided by the number of compensable hours in a fiscal year. 
Contractor workers are reported to DOE in various measures including
FTEs, year-end employment, and average employment levels. 

\2 Energy's Financial Resources and Workforce (GAO/RCED-96-69R, Feb. 
28, 1996). 


   RESULTS IN BRIEF
------------------------------------------------------------ Letter :1

Overall funding, spending, and workforce reductions occurred from
fiscal years 1994 to 1996.  However, budget cuts did not result in
commensurate reductions in spending.  DOE spent almost the same in
fiscal year 1996 as it did in 1994.  While congressional funding
decreased, from $19.5 billion to $17.4 billion (or 11 percent)
between those years, spending only decreased from $20.4 billion to
$19.9 billion (or slightly over 2 percent).  DOE was directed by the
Congress to use its carryover balances of unspent funds from prior
years.\3 Thus, it has recently been able to spend more than provided
by its annual funding.  Furthermore, use of these carryover balances
has resulted in DOE's receiving less new funding during the last
several years. 

DOE's overall federal workforce declined from 19,836 workers to
18,608 workers (or over 6 percent), and its contractor workforce
declined from 136,192 workers to 109,242 workers (or about 20
percent).  About 50 percent of the reductions in the federal
workforce occurred at headquarters, while the other 50 percent
occurred in DOE's field offices.  Even though overall reductions
occurred, some programs had increases in spending and in their
federal workforce.  For example, as the defense nuclear production
facilities have been transferred to the Environmental Program,
spending has increased--by $682 million (or about 11 percent) between
fiscal years 1994 and 1996.  In addition, the Environmental Program's
federal workforce increased by 1,149 workers (or 56 percent). 
However, none of DOE's major programs had increases in their
contractor workforce. 


--------------------
\3 DOE's carryover balances are the funds remaining from the
obligational authority that the Congress provided DOE in prior years. 
Because DOE has not yet obligated these funds or has not yet incurred
costs, they are carried over into the next fiscal year and called
carryover balances. 


   BACKGROUND
------------------------------------------------------------ Letter :2

The administration and the Congress have encouraged federal agencies
to reduce federal and contractor employment and spending and create a
government that works better and costs less.  The Federal Workforce
Restructuring Act of 1994 was enacted to help federal agencies
downsize by allowing non-Defense agencies to offer buyouts to
employees who agreed to resign or retire by March 31, 1995.\4
Furthermore, section 3161 of the National Defense Authorization Act
for Fiscal Year 1993 was enacted to facilitate the reduction of DOE's
contractor workforce, which was necessitated by the end of the Cold
War.  Specifically, this act authorized DOE to minimize the impact of
workforce reductions on contractor employees at defense nuclear
facilities.  Under this act, DOE has provided enhanced retirement and
other benefits to help reduce the workforce. 

In May 1995, DOE implemented its Strategic Alignment and Downsizing
Initiative, which was designed to reduce its funding by $1.7 billion
over a 5-year period.  As we reported in May 1996, DOE's overall
spending and federal workforce reductions in fiscal year 1996 were
consistent with the reduction goals of the Department's Strategic
Alignment and Downsizing Initiative.\5 DOE met its goal to reduce
spending by amending its budget request for fiscal year 1996 to
reflect a planned savings of $208 million.  It met its goal to reduce
its federal workforce by reducing employment below its year-end
target of 12,677 workers.  This number excluded over 6,000 workers in
the power marketing administrations (PMA) and the Federal Energy
Regulatory Commission (FERC), which DOE had hoped to divest.\6

The end of the Cold War also significantly affected DOE's missions. 
DOE's primary mission has changed from producing nuclear weapons to
one primarily of managing environmental cleanup at its facilities. 
This change has caused the closing and reconfiguring of DOE's nuclear
defense facilities and the downsizing of their federal workforce and
contractor workforce. 


--------------------
\4 Agency heads were authorized to defer some employees' separation
until March 31, 1997.  Under separate legislation, Defense agencies
can offer buyouts through September 30, 1999. 

\5 Energy Downsizing:  While DOE Is Achieving Budget Cuts, It Is Too
Soon to Gauge Effects (GAO/RCED-96-154, May 13, 1996). 

\6 The goals of the Strategic Alignment and Downsizing Initiative are
reported as end-of-year employment figures, while the numbers we used
for federal employment were reported as FTEs. 


   LITTLE CHANGE IN SPENDING
   DESPITE FUNDING REDUCTIONS
------------------------------------------------------------ Letter :3

Despite an 11-percent decrease in congressional funding for DOE over
the last 2 fiscal years, DOE's spending has decreased by only 2
percent.  From fiscal year 1994 to fiscal year 1996, the Congress
decreased DOE's annual appropriations by $2 billion--from $19.5
billion to $17.4 billion.  However, DOE's expenditures for the same
period decreased by only about $460 million--from $20.4 billion to
$19.9 billion.  DOE has been able to sustain its fiscal year 1994
spending level because it drew from its $12.9 billion carryover
balance of unspent funds from prior years.  In response to our
identifying and reporting on these carryover balances during the last
several years, the Congress has directed that the Department use
these balances and request less new funding.\7 Table 1 shows the
specific funding and spending changes. 



                                Table 1
                
                Reductions in Funding and Expenditures,
                          Fiscal Years 1994-96

                         (Dollars in millions)

                                        Fiscal year       Change
                                --------------------------------------
                                                              Percenta
                                    1994      1996    Amount        ge
------------------------------  --------  --------  --------  --------
Funding (annual                  $19,505   $17,359  $(2,146)    (11.0)
 appropriations)
Carryover balance from the        12,900     9,600   (3,300)    (25.6)
 prior years
Total funds available for         32,405    26,959   (5,446)    (16.8)
 spending
Expenditures                     $20,353   $19,893    $(460)     (2.3)
----------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

Source:  GAO's analysis of DOE's data. 


--------------------
\7 DOE Management:  DOE Needs to Improve Its Analysis of Carryover
Balances (GAO/RCED-96-57, Apr.  12, 1996). 


   WHILE OVERALL SPENDING
   DECLINED, SPENDING INCREASED IN
   SOME PROGRAMS
------------------------------------------------------------ Letter :4

Although overall spending since fiscal year 1994 has decreased, some
program spending has increased.  For example, as shown in table 2,
the Environmental Management Program's spending increased by $682
million--from $6.5 billion to $7.2 billion.  At the same time,
spending for Defense Programs decreased by $1.2 billion, from $5
billion to $3.9 billion.  This spending shift reflects the increasing
focus on environmental cleanup since the end of the Cold War.  For
example, DOE has been deactivating its defense nuclear production
facilities and removing nuclear and nonnuclear hazardous materials. 
At DOE's Savannah River facility, defense spending decreased about
$779 million, while environmental management spending increased about
$609 million.  The increase in environmental spending resulted
primarily from DOE's using its carryover balances from prior years
rather than new congressional funding. 

Another change, occurring within the administrative offices and other
program areas within DOE, was the elimination of the Science
Education and Technical Information Program (see app.  I, table I.2). 
This program, in which we identified major weaknesses in a prior
report,\8

was not funded in fiscal year 1996, thus saving about $77 million. 



                                Table 2
                
                Changes in Spending for Major Programs,
                          Fiscal Years 1994-96

                         (Dollars in millions)

                                   Fiscal year            Change
                                ------------------  ------------------
                                                              Percenta
Program                             1994      1996    Amount        ge
------------------------------  --------  --------  --------  --------
Environmental Management          $6,506    $7,187      $682      10.5
Defense                            5,049     3,880   (1,169)    (23.1)
Energy Research                    2,865     3,029       165       5.8
Nuclear Energy                     1,470     1,205     (264)    (18.0)
Fossil Energy                      1,170     1,134      (36)     (3.1)
Efficiency and Renewables            861     1,227       367      42.6
PMAs and FERC                        656       614      (42)     (6.5)
Administrative and other             646       546     (100)    (15.5)
Nonproliferation and Security        507       527        20       4.0
Civilian Radioactive Waste           406       346      (60)    (14.8)
Environment, Safety and Health       219       197      (22)     (9.9)
======================================================================
Total                            $20,353   $19,893    $(460)     (2.3)
----------------------------------------------------------------------
Note:  Figures are in nominal dollars.  Totals do not add due to
rounding. 

Source:  GAO's analysis of DOE's data. 


--------------------
\8 Precollege Math and Science Education:  Department of Energy's
Precollege Program Managed Ineffectively (GAO/HEHS-94-208, Sept.  13,
1994). 


   DOE'S FEDERAL WORKFORCE HAS
   DECREASED
------------------------------------------------------------ Letter :5

DOE's overall federal workforce has declined.  Since fiscal year
1994, DOE's federal workforce has decreased by 1,228 FTEs (or 6
percent).  As shown in table 3, DOE made its largest reductions in
Defense Programs by eliminating 806 FTEs.  While cuts were made in
most of DOE's programs, the Environmental Management Program
increased by 1,149 FTEs.  In large part, this increase resulted from
a DOE agreement with the Office of Management and Budget to replace
support service contractors with federal employees.  As discussed in
our earlier reports,\9 this change was made because it was more
economical to have federal workers performing certain tasks, such as
processing personnel security information. 



                                Table 3
                
                  Changes in the Federal Workforce for
                  Major Programs, Fiscal Years 1994-96

                      (Workforce numbers in FTEs)

                                   Fiscal year            Change
                                ------------------  ------------------
                                                              Percenta
Program                             1994      1996    Amount        ge
------------------------------  --------  --------  --------  --------
Environmental Management           2,058     3,207     1,149      55.8
Defense                            2,876     2,070     (806)    (28.0)
Energy Research                      560       466      (94)    (16.8)
Nuclear Energy                       478       408      (70)    (14.6)
Fossil Energy                      1,096       941     (155)    (14.1)
Efficiency and Renewables            612       630        18       2.9
PMAs and FERC                      6,809     6,114     (695)    (10.2)
Administrative and other           4,278     3,733     (545)    (12.7)
Nonproliferation and Security        427       401      (26)     (6.1)
Civilian Radioactive Waste           223       228         5       2.2
Environment, Safety and Health       419       410       (9)     (2.1)
======================================================================
Total                             19,836    18,608   (1,228)     (6.2)
----------------------------------------------------------------------
Source:  GAO's analysis of DOE's data. 

Within this federal workforce reduction, about 50 percent occurred at
headquarters, while the other 50 percent occurred in DOE's field
offices.  Virtually no change occurred in the ratio of headquarters
staff to field staff.  Headquarters staff accounted for just over 40
percent of DOE's total federal workforce in fiscal year 1994 and
accounted for almost 40 percent (a decrease of less than 1 percent)
in fiscal year 1996. 


--------------------
\9 Energy Management:  Improving Cost-Effectiveness in DOE's Support
Services Will Be Difficult (GAO/RCED-93-88, Mar.  5, 1993) and Energy
Management:  Using DOE's Employees Can Reduce Costs for Some Support
Services (GAO/RCED-91-186, Aug.  16, 1991). 


   CONTRACTOR WORKFORCE HAS ALSO
   DECREASED
------------------------------------------------------------ Letter :6

Since the end of fiscal year 1994, DOE's contractor workforce has
been reduced by almost 27,000 workers.  The workforce decreased from
136,192 workers to 109,242 workers at the end of fiscal year 1996. 
As part of the downsizing of DOE's defense mission, the largest
decrease--over half of DOE's total reduction--occurred in its Defense
Programs, which have been reduced by 14,693 workers.  Other decreases
that have occurred as part of the overall downsizing include the
Energy Research (361 workers), Civilian Radioactive Waste (1,346
workers), and Environmental Management (998 workers) programs.  Other
miscellaneous and unspecified programs and activities also accounted
for a major reduction of 6,974 workers. 

DOE's reductions in its contractor workforce did not occur without
related costs.  As we reported earlier this year, about 24,000
separated contractor workers received an average of $25,600 in
benefits.\10 These benefits often exceeded the value of the benefits
the contractors normally would have provided under existing contracts
as well as what would have been provided to federal workers in a
reduction-in-force. 



                                Table 4
                
                Changes in the Contractor Workforce for
                  Major Programs, Fiscal Years 1994-96

                     (Number of contractor workers)

                                   Fiscal year            Change
                                ------------------  ------------------
                                                              Percenta
Program\a                           1994      1996    Amount        ge
------------------------------  --------  --------  --------  --------
Environmental Management          43,215    42,217     (998)     (2.3)
Defense                           39,946    25,253  (14,693)    (36.8)
Energy Research                   13,688    13,327     (361)     (2.6)
Nuclear Energy                     8,783     8,225     (558)     (6.4)
Fossil Energy                      2,423     1,981     (442)    (18.2)
Efficiency and Renewables          2,350     1,881     (469)    (20.0)
Administrative and other           2,925     1,949     (976)    (33.4)
Nonproliferation and               2,543     2,329     (214)     (8.4)
 Security\b
Civilian Radioactive Waste         1,824       478   (1,346)    (73.8)
Environment, Safety and            1,066       593     (473)    (44.4)
 Health\b
Other miscellaneous and            9,522     2,548   (6,974)    (73.2)
 unspecified programs and
 activities
Work for others                    7,907     8,461       554       7.0
======================================================================
Total                            136,192   109,242  (26,950)    (19.8)
----------------------------------------------------------------------
\a While these numbers reflect the contractor workforce tracked by
DOE, there are additional workers, such as subcontractors, that are
not generally tracked. 

\b While many of these workers are functionally assigned to these
programs, many are funded out of other programs that manage the site
at which they work. 

Source:  GAO's analysis of DOE's data. 


--------------------
\10 Department of Energy:  Value of Benefits Paid to Separated
Contractor Workforce Varied Widely (GAO/RCED-97-33, Jan.  23, 1997). 


   AGENCY COMMENTS
------------------------------------------------------------ Letter :7

We sent a draft of this report to the Department of Energy for its
review and comment.  (DOE's comments appear in app.  VI.) DOE agreed
with the report that cost and workforce reductions have occurred from
fiscal years 1994 to 1996.  The Department also acknowledged that
reductions in costs did not directly track to the reductions in
annual congressional funding.  DOE noted that it uses "onboard
strength" (number of employees) to measure workforce reductions. 
While we agree that onboard strength is a means to measure workforce
reductions, we used FTEs in this report because FTEs are a better
measure of the personnel costs associated with performing missions or
operating programs. 


   SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :8

To identify changes in DOE's spending, funding, and federal and
contractor workforces, we started with our prior report that had
developed a baseline on this information for fiscal year 1994.  To
update the data for fiscal years 1995 and 1996, we obtained cost data
from DOE's Financial Information System.  Data on the size of the
federal workforce, measured in FTEs, were obtained from DOE's Energy
Manpower Personnel Resources and Information System.  Data on the
contractor workforce were obtained from DOE's reports on Contractor
Employment Distribution by Programs for the quarters ending September
30 in 1995 and 1996.  The data on the contractor workforce that were
reported by some contractors represent workforce estimates or
allocations rather than the actual number of employees. 

We did not verify the accuracy of the financial data or data on the
workforces; however, we shared our results with DOE officials to
obtain their agreement that the data accurately reflected DOE's
actual spending and the size of its workforces.  We also reviewed
relevant budget documents, prior GAO reports, DOE's Strategic
Alignment and Downsizing Initiative, and legislation.  We discussed
changes in the data with officials representing the Strategic
Alignment and Downsizing Initiative project.  These officials are in
the offices of the Assistant Secretary for Human Resources and
Administration, the Associate Deputy Secretary for Field Management,
and the Chief Financial Officer.  Our review was performed from June
1996 through March 1997 in accordance with generally accepted
government auditing standards. 


---------------------------------------------------------- Letter :8.1

As arranged with your office, unless you publicly announce its
contents earlier, we plan no further distribution of this report for
7 days after the date of this report.  At that time, we will send
copies to the Secretary of Energy and make copies available to others
on request. 

Please contact me at (202) 512-3841 if you or your staff have any
further questions.  Major contributors to this report are listed in
appendix VII. 

Victor S.  Rezendes
Director, Energy, Resources, and
 Science Issues


CHANGES IN MAJOR PROGRAMS,
ADMINISTRATIVE OFFICES, AND OTHER
PROGRAMS
=========================================================== Appendix I



                                        Table I.1
                         
                          Costs for Major Programs, Fiscal Years
                                         1994-96

                                  (Dollars in thousands)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Program                      1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Environmental          $6,505,801    $6,619,461    $7,187,405      $681,604          10.5
 Management
Defense                 5,048,536     4,617,132     3,879,821   (1,168,715)        (23.1)
Energy Research         2,864,515     3,124,544     3,029,366       164,851           5.8
Nuclear Energy          1,469,680     1,196,213     1,205,370     (264,310)        (18.0)
Fossil Energy           1,169,780     1,093,981     1,133,582      (36,198)         (3.1)
Efficiency and            860,780     1,025,665     1,227,436       366,656          42.6
 Renewables
Power marketing           656,210       583,088       613,772      (42,438)         (6.5)
 administrations
 (PMA) and the
 Federal Energy
 Regulatory
 Commission
 (FERC)\a
Administrative and        646,354       602,853       546,272     (100,082)        (15.5)
 other\b
Nonproliferation          506,918       502,488       527,401        20,483           4.0
 and Security
Civilian                  405,688       508,822       345,681      (60,007)        (14.8)
 Radioactive Waste
Environment, Safety       218,969       192,164       197,252      (21,717)         (9.9)
 and Health
=========================================================================================
Total                 $20,353,231   $20,066,411   $19,893,358    $(459,873)         (2.3)
-----------------------------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

\a The actual costs of operating the PMAs are greater than shown
here.  For the purpose of finance, the Bonneville Power
Administration operates in a way that is similar to a government
corporation with a revolving fund that is separate from DOE's
financial system.  Furthermore, some costs of operating and
maintaining PMAs' facilities are financed through the appropriations
of other agencies (e.g., the U.S.  Army Corps of Engineers and the
Bureau of Reclamation) and some costs are recovered by the PMAs
through power revenues. 

\b See table I.2 for activities that make up this category. 

Source:  GAO's analysis of DOE's data. 



                                        Table I.2
                         
                           Costs for Administrative Offices and
                           Other Programs, Fiscal Years 1994-96

                                  (Dollars in thousands)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Office \a                    1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Congressional,             $6,248        $6,487        $5,970        $(278)         (4.4)
 Public and
 Intergovernmental
 Affairs\b
Policy                     30,402        28,289        22,091       (8,311)        (27.3)
Chief Financial            20,683        19,808        18,691       (1,992)         (9.6)
 Officer
Economic Impact and         7,019         8,037         6,043         (976)        (13.9)
 Diversity
Field Management           33,336        11,133        10,012      (23,324)        (70.0)
General Counsel            18,392        17,676        16,658       (1,734)         (9.4)
Human Resources           183,618       163,197       151,868      (31,750)        (17.3)
Field Office              109,967       112,442       100,165       (9,802)         (8.9)
 Departmental
 Administration\c
Energy Information         83,106        84,134        78,712       (4,394)         (5.3)
Science Education          77,280        69,373             0      (77,280)       (100.0)
 and Technical
 Information
Hearings and                5,893         6,617         4,317       (1,576)        (26.7)
 Appeals
Inspector General          27,743        27,663        28,280           537           1.9
Other                      42,667        47,997       103,465        60,798         142.5
=========================================================================================
Total                    $646,354      $602,853      $546,272    $(100,082)        (15.5)
-----------------------------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

\a These data include both headquarters and field office costs. 

\b This office was created during fiscal year 1996, when DOE merged
the Office of Congressional and Intergovernmental Affairs with the
Office of Public and Consumer Affairs. 

\c These data include all Departmental Administration costs outside
of DOE headquarters. 

Source:  GAO's analysis of DOE's data. 



                                        Table I.3
                         
                          Federal Workforce for Major Programs,
                                   Fiscal Years 1994-96

                             (Workforce numbers in full-time
                                    equivalents (FTE))

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Program                      1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Environmental               2,058         2,727         3,207         1,149          55.8
 Management
Defense                     2,876         2,653         2,070         (806)        (28.0)
Energy Research               560           512           466          (94)        (16.8)
Nuclear Energy                478           432           408          (70)        (14.6)
Fossil Energy               1,096         1,021           941         (155)        (14.1)
Efficiency and                612           677           630            18           2.9
 Renewables
PMAs and FERC               6,809         6,408         6,114         (695)        (10.2)
Administrative and          4,278         4,137         3,733         (545)        (12.7)
 0ther\a
Nonproliferation              427           406           401          (26)         (6.1)
 and Security
Civilian                      223           233           228             5           2.2
 Radioactive Waste
Environment, Safety           419           452           410           (9)         (2.1)
 and Health
=========================================================================================
Total                      19,836        19,658        18,608       (1,228)         (6.2)
-----------------------------------------------------------------------------------------
\a See table I.4 for activities that make up this category. 

Source:  GAO's analysis of DOE's data. 



                                        Table I.4
                         
                           Federal Workforce for Administrative
                         Offices and Other Programs, Fiscal Years
                                         1994-96

                               (Workforce numbers in FTEs)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Office\a                     1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Congressional,                124           120           105          (19)        (15.3)
 Public and
 Intergovernmental
 Affairs\b
Policy                        205           214           187          (18)         (8.8)
Chief Financial               292           280           259          (33)        (11.3)
 Officer
Economic Impact and            58            51            50           (8)        (13.8)
 Diversity
Field Management               86            89            68          (18)        (20.9)
General Counsel               213           213           197          (16)         (7.5)
Human Resources             1,006           904           797         (209)        (20.8)
Field Office                1,156         1,121         1,005         (151)        (13.1)
 Departmental
 Administration\c
Energy Information            462           473           448          (14)         (3.0)
Science Education             190           176           143          (47)        (24.7)
 and Technical
 Information\d
Hearings and                   88            80            65          (23)        (26.1)
 Appeals
Inspector General             358           339           324          (34)         (9.5)
Other                          40            77            85            45         112.5
=========================================================================================
Total                       4,278         4,137         3,733         (545)        (12.7)
-----------------------------------------------------------------------------------------
\a These data include both headquarters and field offices. 

\b During fiscal year 1996, the Office of Congressional and
Intergovernmental Affairs was merged with the Office of Public and
Consumer Affairs to form this office. 

\c These data include all Departmental Administration employees
outside of DOE headquarters. 

\d This program was terminated during fiscal year 1996.  The FTEs
shown for fiscal year 1996 represent those charged to the program
before it was abolished. 

Source:  GAO's analysis of DOE's data. 



                                        Table I.5
                         
                         Contractor Workforce for Major Programs,
                                   Fiscal Years 1994-96

                              (Number of contractor workers)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Program                      1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Environmental              43,215        38,654        42,217         (998)         (2.3)
 Management
Defense                    39,946        33,433        25,253      (14,693)        (36.8)
Energy Research            13,688        13,958        13,327         (361)         (2.6)
Nuclear Energy              8,783         8,529         8,225         (558)         (6.4)
Fossil Energy               2,423         2,161         1,981         (442)        (18.2)
Efficiency and              2,350         2,722         1,881         (469)        (20.0)
 Renewables
Administrative and          2,925         4,368         1,949         (976)        (33.4)
 other\a,b
Nonproliferation            2,543         1,936         2,329         (214)         (8.4)
 and Security\b
Civilian                    1,824         1,362           478       (1,346)        (73.8)
 Radioactive Waste
Environment, Safety         1,066           591           593         (473)        (44.4)
 and Health\b
Other miscellaneous         9,522         2,666         2,548       (6,974)        (73.2)
 and unspecified
 programs and
 activities\c
Work for others             7,907         7,874         8,461           554           7.0
=========================================================================================
Total                     136,192       118,254       109,242      (26,950)        (19.8)
-----------------------------------------------------------------------------------------
\a See table I.6 for activities that make up this category. 

\b These contractor workers represent a functional allocation of
staff performing work in these types of administrative activities,
and for the most part, they are paid for by other DOE program
offices. 

\c DOE's contractor workforce report does not provide a specific
break down by program activity for this category. 

Source:  GAO's analysis of DOE's data. 



                                    Table I.6
                     
                     Contractor Workforce for Administrative
                     Offices and Other Programs, Fiscal Years
                                     1994-96

                          (Number of contractor workers)

                                                         Amount of    Percentage
                                                            change        change
                                                      between 1994  between 1994
Office\a            1994          1995          1996      and 1996      and 1996
----------  ------------  ------------  ------------  ------------  ------------
Chief              2,255         3,469         1,351         (904)        (40.1)
 Financial
 Officer
Human                445           660           396          (49)        (11.0)
 Resources
Policy                62           132           109            47          75.8
Economic               0            14             3             3         100.0
 Impact
 and
 Diversity
Energy               102             5             1         (101)        (99.0)
 Informati
 on
Science               61            88            89            28          45.9
 Education
 and
 Technical
 Informati
 on
================================================================================
Total              2,925         4,368         1,949         (976)        (33.4)
--------------------------------------------------------------------------------
\a These contractor workers are located in the field and represent a
functional allocation of staff performing work in these types of
administrative activities.  For the most part, these workers are paid
for by other DOE program offices. 

Source:  GAO's analysis of DOE's data. 


CHANGES IN OPERATIONS OFFICES
========================================================== Appendix II



                                        Table II.1
                         
                           Costs for Operations Offices, Fiscal
                                      Years 1994-96

                                  (Dollars in thousands)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Office                       1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Albuquerque            $4,293,202    $3,356,191    $3,608,801    $(684,401)        (15.9)
Chicago                 2,373,299     2,571,947     2,517,034       143,735           6.1
Idaho                     917,143       818,778       707,800     (209,343)        (22.8)
Nevada                    636,837       499,074       447,469     (189,368)        (29.7)
Oak Ridge               3,087,676     2,608,114     2,201,028     (886,648)        (28.7)
Oakland                 1,506,159     1,544,792     1,700,366       194,207          12.9
Richland                1,868,675     1,835,964     1,710,297     (158,378)         (8.5)
Savannah River          1,784,455     1,732,122     1,638,407     (146,048)         (8.2)
=========================================================================================
Total                 $16,467,446   $14,966,982   $14,531,202  $(1,936,244)        (11.8)
-----------------------------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

Source:  GAO's analysis of DOE's data. 



                                        Table II.2
                         
                             Federal Workforce for Operations
                              Offices, Fiscal Years 1994-96

                               (Workforce numbers in FTEs)

                                                                  Amount of    Percentage
                                                                     Change        change
                                                               between 1994  between 1994
Office                       1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Albuquerque                 1,573         1,532         1,482          (91)         (5.8)
Chicago                       570           577           520          (50)         (8.8)
Idaho                         462           451           425          (37)         (8.0)
Nevada                        389           389           375          (14)         (3.6)
Oak Ridge                     862           727           682         (180)        (20.9)
Oakland                       400           429           411            11           2.8
Richland                      441           544           536            95          21.5
Savannah River                543           571           573            30           5.5
=========================================================================================
Total                       5,240         5,220         5,004         (236)         (4.5)
-----------------------------------------------------------------------------------------
Source:  GAO's analysis of DOE's data. 


CHANGES IN SITE OFFICES AND
FACILITIES
========================================================= Appendix III



                                   Table III.1
                     
                      Costs for Site Offices and Facilities,
                               Fiscal Years 1994-96

                              (Dollars in thousands)

                                                         Amount of    Percentage
                                                            change        change
Office/                                               between 1994  between 1994
facility            1994          1995          1996      and 1996      and 1996
----------  ------------  ------------  ------------  ------------  ------------
Hanford       $1,664,021    $1,492,133    $1,395,950    $(268,071)        (16.1)
 Site\a
Savannah       1,669,471     1,600,932     1,496,304     (173,167)        (10.4)
 River\b
Oak            1,575,422     1,346,382     1,270,807     (304,615)        (19.3)
 Ridge\c
Grand             56,570        58,203        65,736         9,166          16.2
 Junction
Kansas           344,218       296,299       333,723      (10,495)         (3.0)
 City
Mound            162,493       134,273       116,395      (46,098)        (28.4)
 Plant
Nevada           210,241       184,172       155,159      (55,082)        (26.2)
 Test
 Site\d
Uranium          342,450       438,911       433,997        91,547          26.7
 Enrichmen
 t,
 including
 Paducah
 and
 Portsmout
 h
Pantex           266,203       282,051       290,555        24,352           9.1
 Plant
Pinellas         103,050        90,527        63,590      (39,460)        (38.3)
 Plant
Waste             84,260        81,819        83,505         (755)         (0.9)
 Isolation
 Pilot
 Plant
================================================================================
Total         $6,478,399    $6,005,702    $5,705,721    $(772,678)        (11.9)
--------------------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

\a These costs are for the entire site and include the Pacific
Northwest Laboratory.  The laboratory costs are shown separately in
table V.1. 

\b These costs include the Savannah River Plant, the Savannah River
Technology Center, and the Savannah River Ecology Laboratory.  The
laboratory costs are shown separately in table V.1. 

\c These costs include the Oak Ridge National Laboratory, the Oak
Ridge Gaseous Diffusion Plant, the Y-12 Plant, and the Oak Ridge
Institute for Science and Education.  The Institute and the Oak Ridge
National Laboratory are shown separately in table V.1. 

\d These costs exclude those attributable to the Yucca Mountain Site
Characterization Project.  See table IV.1 for those costs. 

Source:  GAO's analysis of DOE's data. 



                                       Table III.2
                         
                          Federal Workforce for Site Offices and
                             Facilities, Fiscal Years 1994-96

                               (Workforce numbers in FTEs)

                                                              Amount of        Percentage
                                                         change between    change between
Office/facility              1994      1995      1996     1994 and 1996     1994 and 1996
-----------------------  --------  --------  --------  ----------------  ----------------
Grand Junction                 14        21        22                 8              57.1
Kansas City                    87        85        69              (18)            (20.7)
Mound Plant                    49       128       131                82             167.3
Nevada Test Site\a            168       153       150              (18)            (10.7)
Paducah/Portsmouth             66        26        25              (41)            (62.1)
Pantex                         76        82        88                12              15.8
Pinellas                       29        27        28               (1)             (3.4)
Waste Isolation Pilot          52        58        57                 5               9.6
 Plant
=========================================================================================
Total                         541       580       570                29               5.4
-----------------------------------------------------------------------------------------
\a These FTEs exclude those attributable to the Yucca Mountain Site
Characterization Project.  See table IV.2 for those FTEs. 

Source:  GAO's analysis of DOE's data. 



                                   Table III.3
                     
                      Contractor Workforce for Site Offices
                       and Facilities, Fiscal Years 1994-96

                          (Number of contractor workers)

                                                         Amount of    Percentage
                                                            change        change
Office/                                               between 1994  between 1994
facility            1994          1995          1996      and 1996      and 1996
----------  ------------  ------------  ------------  ------------  ------------
Hanford\a         16,741        13,186        12,636       (4,105)        (24.5)
Savannah          19,028        15,625        14,581       (4,447)        (23.4)
 River\b
Oak               17,462        16,224        14,734       (2,728)        (15.6)
 Ridge\c
Grand                970           676           616         (354)        (36.5)
 Junction
Kansas             3,289         3,563         3,696           407          12.4
 City
Mound              1,337         1,127           997         (340)        (25.4)
 Plant
Nevada             4,592         3,929         2,777       (1,815)        (39.5)
 Test
 Site\d
Pantex             2,853         2,985         2,984           131           4.6
Pinellas             999           658           552         (447)        (44.7)
Waste                735           637           628         (107)        (14.6)
 Isolation
 Pilot
 Plant
================================================================================
Total             68,006        58,610        54,201      (13,805)        (20.3)
--------------------------------------------------------------------------------
\a These workforce data are for the entire site and include the
Pacific Northwest Laboratory.  The laboratory data are shown
separately in table V.2. 

\b These workforce data include the Savannah River Plant, the
Savannah River Technology Center, and the Savannah River Ecology
Laboratory.  The laboratory data are shown separately in table V.2. 

\c These workforce data include the Oak Ridge National Laboratory,
the Oak Ridge, Paducah and Portsmouth Gaseous Diffusion Plants, the
Y-12 Plant, and the Oak Ridge Institute for Science and Education. 
The Institute and the Oak Ridge National Laboratory are shown
separately in table V.2. 

\d These workforce data exclude those attributable to the Yucca
Mountain Site Characterization Project.  See table IV.3 for that
data. 

Source:  GAO's analysis of DOE's data. 


CHANGES IN SPECIAL PURPOSE OFFICES
AND PROJECTS
========================================================== Appendix IV



                                        Table IV.1
                         
                          Costs for Special Purpose Offices and
                              Projects, Fiscal Years 1994-96

                                  (Dollars in thousands)

                                                              Amount of        Percentage
                                                         change between    change between
Office/project               1994      1995      1996     1994 and 1996     1994 and 1996
-----------------------  --------  --------  --------  ----------------  ----------------
Bartlesville Project      $14,186   $21,480   $24,487           $10,301              72.6
 Office
Fernald Environmental     295,351   291,278   248,908          (46,443)            (15.7)
 Management Project
Morgantown Energy         361,122   422,507   479,513           118,391              32.8
 Technology Center
Naval Petroleum and Oil    17,607    24,996    17,759               152               0.9
 Shale Reserves
Naval Petroleum           252,813   169,560   144,830         (107,983)            (42.7)
 Reserves-California
Pittsburgh Energy         221,408   218,250   303,249            81,841              37.0
 Technology Center
Pittsburgh Naval          329,944   359,732   379,203            49,259              14.9
 Reactors\a
Rocky Flats               719,274   661,733   543,204         (176,070)            (24.5)
Schenectady Naval         312,040   298,965   294,975          (17,065)             (5.5)
 Reactors\b
Strategic Petroleum       191,091   220,189   211,626            20,535              10.7
 Reserve
West Valley               131,387   139,922   111,741          (19,646)            (15.0)
 Demonstration Project
Yucca Mountain Site       279,713   371,251   249,294          (30,419)            (10.9)
 Characterization
 Project
=========================================================================================
Total                    $3,125,9  $3,199,8  $3,008,7        $(117,147)             (3.7)
                               36        63        89
-----------------------------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

Source:  GAO's analysis of DOE's data. 



                                       Table IV. 2
                         
                          Federal Workforce for Special Purpose
                         Offices and Projects, Fiscal Years 1994-
                                            96

                               (Workforce numbers in FTEs)

                                                              Amount of        Percentage
                                                         change between    change between
Office/project               1994      1995      1996     1994 and 1996     1994 and 1996
-----------------------  --------  --------  --------  ----------------  ----------------
Bartlesville Project           24        27        24                 0                 0
 Office
Fernald Environmental                    62        62               (5)             (7.5)
 Management Project            67
Morgantown Energy                       317       293              (38)            (11.5)
 Technology Center            331
Naval Petroleum and Oil        14        14        13               (1)             (7.1)
 Shale Reserves
Naval Petroleum                52        49        45               (7)            (13.5)
 Reserves-California
Pittsburgh Energy             318       298       269              (49)            (15.4)
 Technology Center
Pittsburgh Naval               79        77        73               (6)             (7.6)
 Reactors
Rocky Flats                   221       280       299                78              35.3
Schenectady Naval              68        66        63               (5)             (7.4)
 Reactors
Strategic Petroleum           126       120       116              (10)             (7.9)
 Reserve Office
West Valley                    20        25        25                 5              25.0
 Demonstration Project
Yucca Mountain Site            41       100        98                57             139.0
 Characterization
 Project
=========================================================================================
Total                       1,361     1,435     1,380                19               1.4
-----------------------------------------------------------------------------------------
Source:  GAO's analysis of DOE's data. 



                                        Table IV.3
                         
                         Contractor Workforce for Special Purpose
                         Offices and Projects, Fiscal Years 1994-
                                            96

                              (Number of contractor workers)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Office/project               1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Bartlesville                  215           233           196          (19)         (8.8)
 Project Office
Fernald                     2,335         2,208         1,995         (340)        (14.6)
 Environmental
 Management Project
Naval Petroleum and           127           127           112          (15)        (11.8)
 Oil Shale Reserves
Naval Petroleum               733           525           511         (222)        (30.3)
 Reserves-
 California
Pittsburgh Energy             236           258           158          (78)        (33.1)
 Technology Center
Pittsburgh Naval              788           724           649         (139)        (17.6)
 Reactors
Rocky Flats                 6,741         4,460         3,535       (3,206)        (47.6)
Schenectady Naval           2,972         2,970         2,774         (198)         (6.7)
 Reactors
Strategic Petroleum           954           930           901          (53)         (5.6)
 Reserve Office
West Valley                   970           957           912          (58)         (6.0)
 Demonstration
 Project
Yucca Mountain Site           567           644           444         (123)        (21.7)
 Characterization
 Project
=========================================================================================
Total                      16,638        14,036        12,187       (4,451)        (26.8)
-----------------------------------------------------------------------------------------
Source:  GAO's analysis of DOE's data. 


CHANGES IN LABORATORIES
=========================================================== Appendix V



                                        Table V.1
                         
                           Costs for Laboratories, Fiscal Years
                                         1994-96

                                  (Dollars in thousands)

                                                                  Amount of    Percentage
                                                                     change        change
                                                               between 1994  between 1994
Laboratory                   1994          1995          1996      and 1996      and 1996
-------------------  ------------  ------------  ------------  ------------  ------------
Ames Laboratory           $35,499       $32,640       $28,952      $(6,547)        (18.4)
Argonne National          546,105       530,239       473,317      (72,788)        (13.3)
 Laboratory "East"
 and "West"
Bettis Atomic Power       323,369       352,081       373,672        50,303          15.6
 Laboratory
Brookhaven National       361,946       393,840       400,992        39,046          10.8
 Laboratory
Energy Technology          32,807        21,675        14,740      (18,067)        (55.1)
 Engineering Center
Fermi National            237,912       256,675       271,916        34,004          14.3
 Accelerator
 Laboratory
Idaho National            681,245       685,887       571,539     (109,706)        (16.1)
 Engineering
 Laboratory\a
Inhalation                 13,465        15,073        13,516            51           0.4
 Toxicology
 Research Institute
Knolls Atomic Power       306,140       293,699       289,549      (16,591)         (5.4)
 Laboratory
Laboratory of               2,861         2,587         1,483       (1,378)        (48.2)
 Radiobiology and
 Environmental
 Health
Lawrence Berkeley         214,060       237,411       290,191        76,131          35.6
 Laboratory
Lawrence Livermore        724,766       687,679       737,614        12,848           1.8
 National
 Laboratory
Los Alamos National       968,082       983,762       942,606      (25,476)         (2.6)
 Laboratory
National Renewable        203,686       217,401       204,748         1,062           0.5
 Energy Laboratory
Oak Ridge Institute        41,801        36,556        30,800      (11,001)        (26.3)
 for Science and
 Education
Oak Ridge National        338,847       326,314       422,999        84,152          24.8
 Laboratory
Pacific Northwest         378,289       409,830       374,803       (3,486)         (0.9)
 Laboratory
Princeton Plasma          107,657       132,727        65,095      (42,562)        (39.5)
 Physics Laboratory
Sandia National         1,076,392     1,083,579     1,053,855      (22,537)         (2.1)
 Laboratory
Savannah River             11,757        11,489         8,594       (3,163)        (26.9)
 Ecology Laboratory
Stanford Linear           158,944       185,477       195,373        36,429          22.9
 Accelerator Center
Thomas Jefferson           75,359        77,470        70,691       (4,668)         (6.2)
 National
 Accelerator
 Facility\b
=========================================================================================
Total                  $6,840,989    $6,974,091    $6,837,045      $(3,944)         (0.1)
-----------------------------------------------------------------------------------------
Note:  Figures are in nominal dollars. 

\a These costs include Idaho National Engineering Laboratory and all
other reporting facilities except Argonne National Laboratory-West
and the Pittsburgh Naval Reactors.  The reactors' costs are shown in
table IV.1. 

\b Prior to 1996, this facility was known as the Continuous Electron
Beam Accelerator Facility. 

Source:  GAO's analysis of DOE's data. 



                                        Table V.2
                         
                          Contractor Workforce for Laboratories,
                                   Fiscal Years 1994-96

                              (Number of contractor workers)

                                                              Amount of        Percentage
                                                         change between    change between
Laboratory                   1994      1995      1996     1994 and 1996     1994 and 1996
-----------------------  --------  --------  --------  ----------------  ----------------
Ames Laboratory               538       551       500              (38)             (7.1)
Argonne National            4,502     4,202     3,998             (504)            (11.2)
 Laboratory "East" and
 "West"
Bettis Atomic Power         2,462     2,426     2,374              (88)             (3.6)
 Laboratory
Brookhaven National         3,083     3,321     3,142                59               1.9
 Laboratory
Energy Technology             151       151       102              (49)            (32.5)
 Engineering Center
Fermi National              2,168     2,133     2,093              (75)             (3.5)
 Accelerator Laboratory
Idaho National              7,416     5,842     5,512           (1,904)            (25.7)
 Engineering Laboratory
Inhalation Toxicology         168       157       146              (22)            (13.1)
 Research Institute
Knolls Atomic Power         2,927     2,933     2,753             (174)             (5.9)
 Laboratory
Lawrence Berkeley           2,410     2,240     2,423                13               0.5
 Laboratory
Lawrence Livermore          6,009     5,680     5,385             (624)            (10.4)
 National Laboratory
Los Alamos National         7,024     7,145     6,763             (261)             (3.7)
 Laboratory
National Renewable            913       877       629             (284)            (31.1)
 Energy Laboratory
Oak Ridge Institute for       644       552       477             (167)            (25.9)
 Science and Education
Oak Ridge National          6,033     4,330     4,352           (1,681)            (27.9)
 Laboratory
Pacific Northwest           4,383     3,169     3,039           (1,344)            (30.7)
 Laboratory
Princeton Plasma              729       559       510             (219)            (30.0)
 Physics Laboratory
Sandia National             8,458     8,432     8,169             (289)             (3.4)
 Laboratory
Savannah River Ecology        201       195       202                 1               0.5
 Laboratory
Stanford Linear             1,292     1,245     1,221              (71)             (5.5)
 Accelerator Center
Thomas Jefferson              474       524       493                19               4.0
 National Accelerator
 Facility\a
=========================================================================================
Total                      61,985    56,664    54,283           (7,702)            (12.4)
-----------------------------------------------------------------------------------------
\a Prior to fiscal year 1996, this facility was known as the
Continuous Electron Beam Accelerator Facility. 

Source:  GAO's analysis of DOE's data. 




(See figure in printed edition.)Appendix VI
COMMENTS FROM THE DEPARTMENT OF
ENERGY
=========================================================== Appendix V


MAJOR CONTRIBUTORS TO THIS REPORT
========================================================= Appendix VII

RESOURCES, COMMUNITY, AND ECONOMIC
DEVELOPMENT DIVISION, WASHINGTON,
D.C. 

Allen Li, Associate Director
Jeffrey E.  Heil, Assistant Director
Carrie M.  Stevens
Barbara A.  Johnson
Casandra D.  Joseph
J.  Annette Wright


*** End of document. ***