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Testimony: 

Before the Subcommittee on Federal Workforce, Postal Service, and the 
District of Columbia, Committee on Oversight and Government Reform, 
House of Representatives: 

United States Government Accountability Office: 

GAO: 

For Release on Delivery Expected at 2:00 p.m. EST: 

Tuesday, November 13, 2007: 

Human Capital: 

Building Diversity in GAO's Senior Executive Service: 

Statement of Ronald A. Stroman, Managing Director Office of Opportunity 
and Inclusiveness: 

GAO-08-275T: 

GAO Highlights: 

Highlights of GAO-08-275T, a testimony to the Subcommittee on Federal 
Workforce, Postal Service, and the District of Columbia. 

Why GAO Did This Study: 

A high-performance organization relies on a dynamic workforce with the 
requisite talents, multi-disciplinary knowledge, and up-to-date skills 
to ensure that it is equipped to accomplish its mission and achieve its 
goals. For GAO having a diverse workforce and Senior Executive Service 
(SES) corps is an organizational strength that contributes to the 
achievement of results by bringing a wider variety of perspectives and 
approaches to policy development and implementation, strategic 
planning, problem solving, and decision making. The Office of 
Opportunity and Inclusiveness (O&I) was created by the Comptroller 
General in 2001 to transform the agency’s diversity management 
practices. As such O&I is the principal adviser to the Comptroller 
General on diversity and equal opportunity matter. 

The subcommittee asked us to provide information on the diversity of 
GAO’s Senior Executive Service and the agency’s succession planning 
efforts. This testimony focuses on the diversity of GAO’s workforce and 
leadership team and our efforts and processes for building and 
maintaining diversity in our SES and throughout our workforce. 

What GAO Found: 

As our transformational diversity efforts have been implemented, the 
diversity of GAO’s workforce and leadership team—SES/SL and Band III 
level staff—has improved. In 2000, minorities represented about 14 
percent of the SES/SL corps. As of fiscal year 2007, about 18 percent 
of the SES members were minorities. Similarly, the representation of 
minorities at the Band III level—the SES feeder pool—increased from 
nearly 12 percent in 2000 to nearly 19 percent in 2007, and the 
representation of women in the SES as well as at the Band III and Band 
II levels increased. 

While we have made progress, we still have work to do. We are committed 
to improving the representation of all minority groups in the 
leadership team and in particular, representation of Hispanic and Asian 
American staff should be improved. The percentages of GAO’s Hispanic 
staff members at the SES level and Asian American staff at the Band III 
level were lower than governmentwide percentages. However, for both of 
these groups, the percentages in the feeder pools—staff at the Band III 
and Band IIB levels—either equaled or exceeded the governmentwide 
percentages. 

Several processes help build and maintain diversity in GAO’s SES and 
workforce. Incorporating our core diversity principles into several key 
processes has played an important role in helping GAO to meet its 
strategic objective to build and maintain a work environment that is 
fair, unbiased and inclusive and that offers the opportunity for all 
employees to realize their full potential. Our workforce planning and 
recruitment processes, training opportunities, reviews of human capital 
processes conducted by O&I, and the selection process for SES 
candidates help support our efforts to maintain and improve diversity 
in our SES. 

Figure: 

This figure is a picture of a triangle with the following lines, from 
top to bottom: 

SES; 
SES Selection; 
O&I reviews; 
Training framework; 
Recruitment process; 
Workforce planning process; 
Strategic plan. 

[See PDF for image] 

Source: GAO. 

[End of figure] 

To view the full product, including the scope and methodology, click on 
GAO-08-275T. For more information, contact Ronald A. Stroman at 202-512-
6388 or stromanr@gao.gov. 

[End of section] 

Chairman Davis and Members of the Subcommittee: 

Good Afternoon. I am Ron Stroman, the Managing Director of the Office 
of Opportunity and Inclusiveness at the United States Government 
Accountability Office (GAO). I am pleased to be here today to address 
an issue of such vital importance to GAO--Diversity in our Senior 
Executive Service (SES). 

GAO's mandate to support the Congress in meeting its constitutional 
responsibilities and to help improve the performance and ensure the 
accountability of the federal government requires a highly skilled and 
diverse workforce and leadership team. The diversity of our leaders-- 
SES and Senior Level (SL) executives and our Band III directors-- 
increases the range of perspectives and problem-solving approaches and 
creates higher value solutions for the Congress and the American 
people. For example, our leaders directed interdisciplinary teams of 
analysts, auditors, economists, accountants, investigators, and others; 
conducted work that addresses many difficult issues confronting the 
nation, and helped the federal government achieve a total of $51 
billion in financial benefits in fiscal year 2006. 

The Office of Opportunity and Inclusiveness (O&I), supports GAO's 
strategic commitment to diversity. O&I is the principal adviser to the 
Comptroller General on diversity and equal opportunity matters. The 
office manages GAO's Equal Employment Opportunity (EEO) program, 
including informal pre-complaint counseling, and GAO's formal 
discrimination complaint process. We also operate the agency's early 
resolution and mediation program by assisting managers and employees to 
resolve workplace disputes and EEO concerns without resorting to the 
formal process. In addition, O&I monitors GAO's disability policy, 
including access to reasonable accommodations, and oversees the 
management of GAO's interpreting service for our deaf and hard-of- 
hearing employees. In furtherance of our transformational diversity 
approach, O&I monitors, evaluates, and recommends changes to GAO's 
major human capital policies and processes including those related to 
recruiting, hiring, performance management, promotion, awards, and 
training. These reviews, along with independent reviews conducted by 
our Human Capital Office, are generally conducted before final 
decisions are made in an effort to provide reasonable assurance that 
GAO's human capital processes and practices promote fairness and 
support a diverse workforce. 

My testimony today will focus on the diversity of GAO's workforce and 
leadership team and our efforts and processes for building and 
maintaining diversity in our SES and throughout our workforce. 

Diversity of GAO's Workforce and Leadership Team: 

The Office of Opportunity and Inclusiveness (O&I) was created by the 
Comptroller General in 2001 to transform the agency's diversity 
management practices. Since then we have worked closely with the 
agency's top managers to improve diversity management practices in GAO. 
As an indicator of our success, GAO's analyst and specialist population 
is more diverse than the relevant civilian labor force (RCLF).[Footnote 
1] Specifically, the percentages of GAO's analyst and specialist staff, 
as of October 2006, exceeded the 2000 RCLF percentages for African 
Americans, Asian Americans, and Hispanic staff as well as for women. 
Figure 1 compares the GAO and RCLF percentages. 

Figure 1: Comparison of GAO's Analysts and Specialist Staff as of 
October 2006, to the 2000 Relevant Civilian Labor Force Data: 

This figure is a combination bar chart showing a comparison of GAO's 
analysts and specialist staff as of October 2006, to the relevant 
civilian labor force data. 

African-American: RCLF: 6.62; 
African-American: GAO: 12.41. 

Asian: RCLF: 6.81; 
Asian: GAO: 8.24. 

Hispanic: RCLF: 4.13; 
Hispanic: GAO: 5.11. 

Women: RCLF: 43.24; 
Women: GAO: 52.47. 

[See PDF for image] 

Source: GAO analysis. 

[End of figure] 

The diversity of our leadership team has also improved over the years. 
In fiscal year 2000, minorities represented about 14 percent of the 
SES/SL corps. As of fiscal year 2007, about 18 percent of the SES/SL 
members were minorities. Similarly the representation of minorities at 
the Band III--the SES/SL feeder pool--increased from nearly 12 percent 
in 2000 to nearly 19 percent in 2007, and the representation of women 
in the SES as well as at the Band III and Band II levels increased. 
Figures 2 and 3 illustrate changes in the percentages of minorities and 
women, respectively. 

Figure 2: Percentage of Minorities in GAO at the SES/SL level, Band 
III, and Band II from fiscal year 2000 to fiscal year 2007: 

This figure is a combination line chart showing percentage of 
minorities in GAO at the SES/SL level, Band III, Band II from fiscal 
year 2000 to fiscal year 2007. The X axis shows the years 2000 through
2007. The Y axis shows the percentage of staff. 

[See PDF for image] 

Source: GAO. 

[End of figure] 

Figure 3: Percentage of Women in GAO at the SES/SL level, Band III, and 
Band II from fiscal year 2000 to fiscal year 2007: 

This figure is a combination line chart showing the percentage of women 
in GAO at the SES/SL level, Band III, and Band II from fiscal year 2000 
to fiscal year 2007. The X axis shows the years 2000 through 2007. The 
Y axis shows the percentage of staff. 

[See PDF for image] 

Source: GAO. 

[End of figure] 

While we have made progress, we still have work to do. We are committed 
to improving the representation of all minority groups in the 
leadership team and in particular, representation of Hispanic and Asian 
American staff should be improved. As shown in table 1, percentages of 
GAO's Hispanic staff members at the SES level and Asian American staff 
at the Band III level were lower than governmentwide percentages. 
However, for both of these groups, the percentages in the feeder pools-
-staff at the lower levels--either equal or exceed the governmentwide 
percentages. Specifically, 3.9 percent of GAO's Band III staff and the 
GS-15's governmentwide are Hispanic and the Asian American staff 
represent 7.2 percent of the Band IIB level in GAO while Asian staff 
are 5.4 percent of the GS-14 staff governmentwide. We expect that 
several staff will be prepared to move into higher positions in the 
next few years and therefore improve the representation at these 
levels. O&I is also working closely with GAO executive committee and 
teams' managing directors to ensure that sufficient developmental 
opportunities are being provided. 

Table 1: Percentages of GAO and Governmentwide staff by Demographic 
Group at the SES/SL, Band III, and Band IIB levels, October 2006: 

SES/SL staff as of October 2006: Demographic Group: African American; 
SES/SL staff as of October 2006: Government wide: 8.6; 
SES/SL staff as of October 2006: GAO: 11.6. 

SES/SL staff as of October 2006: Demographic Group: Asian American; 
SES/SL staff as of October 2006: Government wide: 2.3; 
SES/SL staff as of October 2006: GAO: 5.8. 

SES/SL staff as of October 2006: Demographic Group: Hispanic; 
SES/SL staff as of October 2006: Government wide: 3.6; 
SES/SL staff as of October 2006: GAO: 0.8. 

SES/SL staff as of October 2006: Demographic Group: Caucasian; 
SES/SL staff as of October 2006: Government wide: 84.0; 
SES/SL staff as of October 2006: GAO: 81.8. 

SES/SL staff as of October 2006: Demographic Group: Men; 
SES/SL staff as of October 2006: Government wide: 73.5; 
SES/SL staff as of October 2006: GAO: 59.5. 

SES/SL staff as of October 2006: Demographic Group: Women; 
SES/SL staff as of October 2006: Government wide: 22.7; 
SES/SL staff as of October 2006: GAO: 40.5. 

GS-15/Band III staff as of October 2006: African American; 
GS-15/Band III staff as of October 2006: 7.3; 
GS-15/Band III staff as of October 2006: 10.8. 

GS-15/Band III staff as of October 2006: Asian American; 
GS-15/Band III staff as of October 2006: 7.1; 
GS-15/Band III staff as of October 2006: 4.1. 

GS-15/Band III staff as of October 2006: Hispanic; 
GS-15/Band III staff as of October 2006: 3.9; 
GS-15/Band III staff as of October 2006: 3.9. 

GS-15/Band III staff as of October 2006: Caucasian; 
GS-15/Band III staff as of October 2006: 80.9; 
GS-15/Band III staff as of October 2006: 81.2. 

GS-15/Band III staff as of October 2006: Men; 
GS-15/Band III staff as of October 2006: 70.2; 
GS-15/Band III staff as of October 2006: 54.1. 

GS-15/Band III staff as of October 2006: Women; 
GS-15/Band III staff as of October 2006: 29.8; 
GS-15/Band III staff as of October 2006: 45.9. 

GS-14/Band IIB staff as of October 2006: Demographic Group: African 
American; 
GS-14/Band IIB staff as of October 2006: Government wide: 11.5; 
GS-14/Band IIB staff as of October 2006: GAO: 10.3. 

GS-14/Band IIB staff as of October 2006: Demographic Group: Asian 
American; 
GS-14/Band IIB staff as of October 2006: Government wide: 5.4; 
GS-14/Band IIB staff as of October 2006: GAO: 7.2. 

GS-14/Band IIB staff as of October 2006: Demographic Group: Hispanic; 
GS-14/Band IIB staff as of October 2006: Government wide: 4.3; 
GS-14/Band IIB staff as of October 2006: GAO: 4.4. 

GS-14/Band IIB staff as of October 2006: Demographic Group: Caucasian; 
GS-14/Band IIB staff as of October 2006: Government wide: 77.7; 
GS-14/Band IIB staff as of October 2006: GAO: 78.1. 

GS-14/Band IIB staff as of October 2006: Demographic Group: Men; 
GS-14/Band IIB staff as of October 2006: Government wide: 65.2; 
GS-14/Band IIB staff as of October 2006: GAO: 48.8. 

GS-14/Band IIB staff as of October 2006: Demographic Group: Women; 
GS-14/Band IIB staff as of October 2006: Government wide: 34.8; 
GS-14/Band IIB staff as of October 2006: GAO: 51.2. 

Source: GAO and GAO's analysis of the Office of Personnel Management's 
Central Personnel Data File: 

Note 1: Governmentwide includes civilian employees of all cabinet-level 
departments, independent agencies, commissions, councils and boards in 
the executive branch except the intelligence agencies, the Postal 
Service and the Foreign Services (as of 2006). We included GS-15 , GS- 
14 and equivalent employees. GS-equivalent employees are those in 
equivalent grades under other pay plans that follow the GS grade 
structure and job evaluation methodology or are equivalent by statute. 

Note 2: While Band IIB and GS-14 levels are not equivalent, we compared 
these groups because they represent the feeder pools for the Band III 
and GS-15 levels, respectively. 

[End of table] 

Several Processes Help Build and Maintain Diversity in GAO's SES and 
Workforce: 

One of GAO's strategic objectives is to build and maintain a work 
environment that is fair, unbiased,. and inclusive and that offers the 
opportunity for all employees to realize their full potential. Several 
efforts and processes support our strategic commitment to diversity. As 
shown in figure 4, our workforce planning and recruitment processes, 
training opportunities, reviews of human capital processes conducted by 
O&I, and the selection process for SES candidates help support our 
efforts to maintain diversity in our SES. 

Figure 4: Processes That Support Diversity in GAO's SES: 

This figure is a picture of a triangle with the following lines, from 
top to bottom: 

SES; 
SES Selection; 
O&I reviews; 
Training framework; 
Recruitment process; 
Workforce planning process; 
Strategic plan. 

[See PDF for image] 

Source: GAO. 

[End of figure] 

Top Leaders Involved in Rigorous Selection and Training Processes for 
SES Candidates: 

Throughout the year, the Comptroller General and the executive 
committee engage in broad, integrated succession planning and 
management efforts that focus on strengthening both current and future 
organizational capacity. The Comptroller General and the executive 
committee members regularly discuss the anticipated leadership needs as 
well as the ability of the current workforce to meet future needs. Our 
top leaders are directly involved in the selection of our executives 
and support a diverse senior executive corps. 

Our process for selecting individuals from among a diverse pool of 
qualified candidates directly affects the quality and diversity of our 
executives. The process begins when the Comptroller General determines 
that a need exists for additional executive candidates. Applications 
are reviewed by GAO Executive Resources Board--a diverse group of 
senior executives that includes the Chief Administrative Officer and 
the General Counsel--and those they recommend are then referred to the 
Chief Operating Officer and the Comptroller General. O&I reviews this 
list of applicants and provides comments to the Comptroller General. 
During the review, O&I considers the diversity of the proposed list of 
SES candidates, the relative strength of each applicant's nomination 
package in view of the workforce planning needs of the agency, and any 
issues regarding the diversity management practices of the candidates. 
The Comptroller General then selects the executive candidates. 

Once selected, each SES candidate must complete a rigorous leadership 
training program. GAO's Executive Candidate Assessment and Development 
Program (ECADP) is designed to create candidates capable of becoming 
GAO executives. The program is designed to provide all candidates with 
an institutional framework to perform successfully as a GAO executive 
and to ensure that the candidates have essential technical and 
managerial competencies for success in the SES. The ECADP includes 
training workshops, and assessment and feedback on leadership styles 
and skills. Also, candidates are assigned mentors, shadow a senior 
executive, create individual development plans, and complete special 
assignments and projects. Some of the SES candidate special projects 
focus on human capital issues that could have an effect on diversity in 
the workforce. For example, one SES candidate conducted a review that 
examined whether there were differences in the retention rates of new 
staff from various groups. O&I participates in the training of 
executive candidates by discussing leading practices in diversity 
management, the importance of clearly communicating top leadership's 
commitment to diversity, and strategies that managers can use to 
communicate that commitment while holding staff accountable for 
results. 

Various Processes Support a Diverse Workforce: 

Each year, to coincide with the budget, GAO initiates a workforce 
planning process to help identify workforce requirements needed to 
accomplish our strategic objectives. GAO's workforce planning process 
helps us accomplish our mission efficiently and effectively; link our 
resources to our strategic direction; identify and address skill gaps, 
surpluses and succession shortages; and provide a strategy to attract 
and retain the right people with the right skills at the right time. 
GAO's 2008-2009 workforce planning process established several 
principles to communicate and guide organizational expectations and to 
foster a transparent, effective and strategic resource planning 
process. Several of these principles addressed key human capital areas 
that affect the diversity of the workforce and the leadership, such as 
succession planning, hiring, and promotions. 

Our recruitment process includes a variety of steps to help attract a 
diverse pool of candidates. We have identified a group of colleges and 
universities that have demonstrated overall superior academic quality, 
and that either have a particular program or a high concentration of 
minority students. This group includes several Historically Black 
Colleges and Universities, Hispanic-serving institutions, and 
institutions with a significant portion of Asian-American students. In 
addition, GAO has established partnerships with professional 
organizations and associations with members from groups that 
traditionally have been underrepresented in the federal workforce, such 
as the American Association of Hispanic CPAs, the National Association 
of Black Accountants, the Federal Asian Pacific American Council, the 
Association of Latino Professionals in Finance and Accounting, and the 
American Association of Women Accountants. GAO's recruiting materials 
reflect the diversity of our workforce, and we annually train our 
campus recruiters on the best practices for identifying a broad 
spectrum of diverse candidates. 

GAO's training emphasis and framework supports our efforts to maintain 
a diverse workforce by providing opportunities for all employees to 
realize their full potential. Our Learning Center has established 
learning tracks for all levels of the GAO analyst population that help 
all staff prepare for leadership roles. These learning tracks identify 
mandatory courses required by federal statute or GAO policy that all 
GAO employees must complete, core courses designed to provide basic 
knowledge and skills needed to succeed at each band level and elective 
courses that provide supplemental knowledge and skills. As staff move 
to a senior level, the core courses include those that help prepare 
them to manage a diverse workforce. For example, Band II level staff 
should take a course on coaching others. One learning objective for 
this course is to understand the importance of recognizing individual 
differences and tailoring one's coaching style to the unique 
characteristics of the person being coached. 

The O&I staff conduct reviews to ensure fairness in performance 
appraisal decisions, promotions, awards, hiring, and recruitment. For 
the review of draft performance appraisals, O&I uses a two-part 
approach; we review statistical data on performance ratings by 
demographic group within each unit, and where appropriate, we conduct 
assessments of individual ratings. The O&I performance appraisal 
reviews have identified areas for improvement. As I testified before 
this Subcommittee on May 22nd of this year, GAO is deeply concerned 
about the differences in average appraisal ratings among African 
Americans at all bands for 2002-2005 compared with Caucasian 
analysts.[Footnote 2] We have hired a full-service management 
consulting firm to conduct an independent assessment of factors that 
may influence these rating differences and to make recommendations 
regarding further steps that GAO can take to ensure fair, consistent, 
and nondiscriminatory application of GAO's performance management 
system. The contractor has an outstanding reputation for quality, 
working with public and private entities, including the Congressional 
Black Caucus Foundation. The contractor's report is due March 2008. 

In addition, O&I staff perform a two-part review of the Band II and 
Band III promotion process. First, O&I staff review the proposed list 
of Best Qualified candidates. Generally, we expect that those 
candidates with the best appraisals scores--those who have performed 
well--would also be ranked highly by the panel. If our review 
identifies concerns, I discuss these concerns with the senior executive 
who served as the chairperson for the panel and in some instances 
discuss the matter with the executive committee members. The second 
part of the promotion review process focuses on the proposed promotion 
decisions, and we consider diversity relative to available candidates. 
As with the appraisal review process, if there are concerns I discuss 
them with the selecting officials and the executive committee, when 
needed. Promotion decisions are not finalized until after the O&I 
review process. 

Concluding Remarks: 

The agency's top leadership is fully committed to creating an 
environment that is fair and unbiased and that values diversity. Having 
a diverse workforce and leadership cadre is an essential strategic 
component to GAO's success. While the diversity of our workforce and 
leadership team has improved, there are areas that still need to be 
addressed. Our efforts to enhance diversity in the SES coupled with 
incorporating our core diversity principles into our human capital 
processes will enable us to continue to improve the diversity of our 
future leadership team. 

This concludes my prepared statement. At this time I would be pleased 
to answer any questions that you or other members of the subcommittee 
may have. 

[End of section] 

Footnotes: 

[1] The Civilian Labor Force (CLF) is defined as those 16 and older 
(including federal workers) who are employed or looking for work and 
not in the military or institutionalized. The Relevant Civilian Labor 
Force data (RCLF) are the CLF data that are directly comparable (or 
relevant) to the population being considered. Throughout this testimony 
we use 2000 RCLF because it is the most current and reliable data 
available at this time. Also, we use 2006 data for GAO in order to be 
make consistent comparisons to the 2006 government wide data. 

[2] GAO, Human Capital: Efforts to Enhance Diversity and Ensure a Fair 
and Inclusive Workplace at GAO, GAO-07-901T (Washington, D.C.: May 22, 
2007). 

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