Module 1.2 Manpower Management PDF

Module 2 Manpower Management **Terminology and Concepts** Manpower management addresses all types of manpower, including military, civilian, active and reserve components, and contractors. Terms and concepts that are essential to the planning, programming, budgeting, and execution of manpower inc...

Module 2 Manpower Management **Terminology and Concepts** Manpower management addresses all types of manpower, including military, civilian, active and reserve components, and contractors. Terms and concepts that are essential to the planning, programming, budgeting, and execution of manpower include: - **Actual strength.** The number of personnel in---or projected to be in---an organization or account at a specified point in time. - **Assigned strength.** Actual strength of an entire service, not necessarily equal to combined unit actual strengths because individuals may be assigned but not joined. - **Authorized strength.** The total strength authorized by Congress (for internal service applications only). Authorized strength may be used synonymously with documented strength. - **Average strength.** The arithmetic mean strength for a specific time span. The average strength for one year is equivalent to work years. - **DoD civilian workforce.** U.S. citizens or foreign nationals hired directly or indirectly to work for DoD, paid from appropriated or non-appropriated funds under permanent or temporary appointment. This includes employees filling full-time, part-time, intermittent, or on-call positions. Specifically excluded are all government contractor employees. - **End strength.** Strength at the end of a fiscal year is synonymous with end-year strength. Single point strengths for other points in time must be specified, such as end first-quarter strength. - **Future Years Defense Program (FYDP).** The official report (database) summarizes the resources provided to DoD. The FYDP identifies funding for each appropriation, manpower authorization and program, and selected types of unit or equipment authorizations by resource management packages called program elements. - **Force structure.** The totality of units in a DoD component. - **Manpower programming.** The process of compiling and projecting future manpower requirements; documenting these requirements; integrating them into the overall planning, programming, and budgeting process; and translating them into a form that provides a basis for personnel procurement, training, and assignment. - **Peacetime strength.** The authorized and programmed strength at the end of the fiscal year for active forces, the Selected Reserve (to include drilling reservists, military technicians, and active Guard and Reserve), and appropriated-fund civilian employees in the FYDP. **Global Force Management (GFM)** Within the total authorized and filled end strength levels, the Joint Chiefs of Staff lead the process for allocating military manpower, based on the national defense strategy and resource constraints. Global force management (GFM) considers readiness and availability of the force, demand from combatant commanders, and the capacity and capabilities for logistics and transportation. GFM applies three distinct lenses to force allocation: preferred forces during planning activities, contingency sourcing based on a specific contingency requirement, and execution sourcing based on all available assets, including headquarters-assigned positions at the Combatant Commands. All assignments are documented in the Global Force Management Allocation Plan, which is approved by the Secretary of Defense. The GFM process is governed by *Chairman of the Joint Chiefs of Staff* *Guide 3130*, dated April 12, 2023. OMB Circular A-11 provides the basic requirements for submission of military and civilian manpower estimates to be included in the president's budget request. - Section 32 provides details on budgeting for personnel compensation, benefits, and related costs, such as the initial pay raise assumptions, guidance on absorbing within-grade increases, and budgeting for awards - Section 85, Estimating Employment Levels and the Employment Summary, provides details on estimating military manpower on the basis of average strength, estimating both direct and reimbursable civilian positions, and submitting civilian data on an FTE basis - Schedule Q is the required exhibit that generates the manpower details for the president's budget The budgets for military manpower are based on average end strength across the fiscal year and are organized by officer, enlisted, and cadets, as well as component (active, reserve, National Guard). Volume 2A, Chapter 2, of the DoD FMR provides specific guidance on budgeting for military manpower, including all of the budget exhibits required for submission to OUSD(C) and the justification material in support of the President's Budget. The intent in budget formulation for manpower is to: - Budget for the most effective mix of civilians, contractors, temporary personnel, or other alternatives to meet the mission - Accurately price the estimated end strength and FTEs - Incorporate pay raises and other guidance changes - Consider all options for manpower needs to preclude unnecessary growth and manage average grade to preclude grade creep - Restrain manpower of headquarters organizations consistent with congressional direction **1.3.2 Department of Defense Separation Incentives** Section 9902(f) of Title 5 of the United States Code (U.S.C.) requires that buyout payments be paid from amounts available for the employee's pay, and generally, be fully repaid if the employee rejoins the federal government within five years of separation. This authority may be used to reduce the number of personnel employed by DoD or to restructure the workforce to meet mission objectives without reducing the overall number of personnel. The latter point is particularly significant since initial buyout legislation required the elimination of a fulltime equivalent position for every position vacated through a buyout. That is no longer the case. The buyout program is known as the Voluntary Separation Incentive Pay (VSIP) program, and the program for early retirement is known as Voluntary Early Retirement Authority (VERA). An individual can be subject to either or both of these programs at the time of separation from active service. DoD is permitted no more than 25,000 buyout separations per year under this authority, but this limitation does not include any buyout separations subject to base realignment and closure action for non-appropriated fund employees. Per 5 U.S.C. 9902(f), buyout payments (the lesser of \$40,000 or the amount of the employee's severance pay) are required to be paid from amounts available for the employee's pay, and generally, to be fully repaid if the employee rejoins the federal government within five years of separation. The buyout payment limit is in effect until at least September 30, 2021. **DoD Manpower Utilization Policy** During mobilization or wartime, the DoD manpower utilization policy is based on: - Terminating or deferring activities not essential to the war effort in order to permit the - reallocation of personnel to higher priority tasks - Assigning military personnel only to those jobs that contribute to the war unless: - Military incumbency is required by law - Possessing military-unique skills or experience is essential for successful performance of required duties - Military authority or discipline is requisite to the position - Alternative manpower is not available **Mobilization** During mobilization, Defense leaders have to consider the current makeup of civilian workforce and the impact of mobilization on the depth of that workforce. Plans for the civilian workforce during contingencies and emergencies shall include assessments and alternatives for: - The loss of civilian employees who are reservists or retired from military service who may be recalled to active duty - The loss of civilian employees who may be drafted into military service In addition, an expansion of military members through mobilization may require an increase in the civilian workforce strength. Installation planning for civilian workforce expansion and recruitment during contingencies and emergencies shall include consideration of: - The availability and use of DoD civilian retirees - The placement of military retirees not normally subject to military recall (those over age 60 or prevented from recall by serious disability) - The borrowing of employees from other federal agencies - The use of contractors - The use of overtime and temporary employees **DoD Total Force Policy** Under the DoD Total Force Policy, many military functions not required during peacetime are assigned to the reserve components. The execution of contingency operations may require: - The mobilization of all or part of the reserve components to bring the force structure to the levels required for a particular conflict - The augmentation of active and activated reserve units by non-unit reservists, recalled retirees, volunteers, and draftees Some civilians who perform wartime military functions in peacetime will remain as emergency essential (E-E) employees, but most will be replaced in theater by active-duty military personnel or recalled reservists. The military services and Defense agencies plan for military force buildup, deployment, employment, and sustainment on the assumption that an adequate civilian workforce will be available. Increases in peacetime work levels will require increased productivity, increased hours of work, and/or increased numbers of civilian employees. **Mobilization Assessment Process** Mobilization assessments are critical throughout PPBE. Many requirements represent continuing mobilization needs in deployed locations and will be deliberated as part of the programming phase of PPBE. Documenting the manpower requirements and getting them validated through the service's operational chain of command is critical for resourcing in the programming phase. A key question from the validating body will be the analysis undertaken to develop the requirements and whether all types of manpower resources were fully considered. During execution, any unfulfilled requirements or newly emerging requirements will need to be fully assessed prior to requesting the assignment of forces. DoD Directive (DODD) 1100.4, *Guidance for Manpower Management*, outlines the decisions that need to be considered during the mobilization assessment process: - **Determine manpower requirements:** - Validated requirements are developed using approved scenarios and time-phased deployments - Analysis must document a range of options for force readiness, deployment capability, and sustainability - **Incorporate manpower requirements into PPBE.** Validated requirements must be identified and programmed across the FYDP. - **Manage manpower during mobilization or crisis:** - Optimize all types of wartime manpower: military, including active duty, reserve component, and retirees; civilians; and contractors - Defer activities not essential to a national emergency or military contingency to allow reallocation of the personnel to higher priority tasks - Assign military personnel only to those tasks that directly contribute to the military effort, except positions that require military incumbency for reasons of law or esprit de corps; when alternate manpower is not available; or, when military-unique knowledge and skills are required for successful performance of the duties **Presidential Authority to Activate Reserve Forces** Per 10 U.S.C. 12304, the president has the authority to order to active duty Selected Reserve and Ready Reserves: - When the president determines that it is necessary to augment the active forces for any operational mission or emergency involving the use or threatened use of a weapon of mass destruction, terrorist attack, or a threatened terrorist attack in the United States, the president may authorize the Secretary of Defense and the Secretary of Homeland Security (for the Coast Guard), without the consent of Congress, to order to active duty (other than for training) for not more than 365 days: - Any unit of the Selected Reserve - Any member of the Individual Ready Reserve - No more than 200,000 members of the Selected Reserve and the Individual Ready Reserve may be on active duty under this section at any one time, of which no more than 30,000 may be members of the Individual Ready Reserve **Civilian Employees during Crisis Situations** The following definitions apply to civilians during crisis situations based on DODD 1404.10, *DoD Civilian Expeditionary Workforce*:3 - **Crisis situation.** A civil insurrection, civil war, terrorism, wartime, or hostile condition that threatens physical harm or imminent danger to the health or well-being of the E-E civilian employee. - **Emergency essential (E-E).** A position-based designation to support the success of com operations or the availability of combat-essential systems in accordance with 10 U.S.C. 1580(e) and will be designated as key in accordance with paragraph 4.d.(5). A person occupying an E-E position could be deployed to a crisis area. - **Non-combat essential (NCE).** A position-based designation to support the expeditionary - requirements in other than combat or combat support situations and will be designated as key employees in accordance with paragraph 4.d.(5). - **Capability-based volunteer (CBV).** An employee who may be asked to volunteer for deployment, remain behind after other civilians have evacuated, or backfill other DoD civilians who have deployed to meet expeditionary requirements in order to ensure that critical expeditionary requirements that may fall outside or within the scope of an individual's position are fulfilled. - **Capability-based former employee volunteer corps.** A collective group of former (including retired) DoD civilian employees who have agreed to be listed in a database as individuals who may be interested in returning to federal service as a time-limited employee to serve expeditionary requirements or who can backfill for those serving other expeditionary requirements. When these individuals are re-employed, they shall be deemed CBV employees. - **Key employees.** DoD civilian employees in positions designated as E-E and/or NCE will be designated key in accordance with DODD 1200.7. DoD Directive-Type Memorandum (DTM) 17-004, dated January 25, 2017, implements guidance for the expeditionary civilian workforce and integrates civilians into the global force management process. With publication of the DTM, DODD 1404.10 was canceled. DTM 17-004 includes the following key terms: - **Capability-based volunteer**. An employee who may be asked to volunteer for deployment. - **Deployment**. Either temporary reassignment or the requirement to stay in place to support contingency operations. - **Emergency essential**. A position-based designation to support successful combat operations or to support the availability of combat-essential systems, consistent with 10 U.S.C. 1580. - **Non-combat essential**. A position-based designation to support expeditionary requirements in other than combat or combat support situations. - The employee's duty is to provide immediate and continuing support for combat operations or to support maintenance and repair of combat essential systems of the armed forces - The duty is necessary in a combat zone after the evacuation of nonessential personnel - It is impracticable to convert the position to military because it must be performed without interruption - **Commercial activity.** A commercial activity is the process resulting in a product or service that is or could be obtained from a private sector source. Agency missions may be accomplished through commercial facilities and resources, government facilities and resources, or mixes thereof, depending upon the product, service, type of mission, and equipment required. - **Inherently governmental activity**. An inherently governmental activity is one that is so intimately related to the public interest as to mandate performance by federal employees. Activities that meet these criteria are not in competition with commercial sources, are not generally available from commercial sources, and are not subject to OMB Circular A-76. Inherently governmental functions normally fall into two categories: - **The act of governing.** The discretionary exercise of government authority. Examples include management of government programs requiring value judgments, as in direction of the national defense; management and direction of the armed services; activities performed exclusively by military personnel who are subject to deployment in a combat, combat support, or combat. ***OMB Circular A-76, Performance of Commercial Activities*** OMB Circular A-76, *Performance of Commercial Activities*, establishes federal policy regarding the performance of commercial activities and implements the statutory requirements of the FAIR Act of 1998. The supplement to Circular A-76 sets forth procedures for determining whether commercial activities should be performed under contract with commercial sources or in-house using government facilities and personnel. OMB Circular A-76 is designed to empower federal managers to make sound and justifiable business decisions. It is not designed to simply contract out; rather, it is designed to: - Balance the interests of the parties to a make or buy cost comparison - Provide a level playing field in a public and private sector competition - Encourage competition and choice in the management and performance of commercial activities. The U.S. government\'s policy is to: - **Achieve economy and enhance productivity.** Competition enhances quality, economy, and productivity. Whenever commercial-sector performance of a government-operated commercial activity is permissible, in accordance with OMB Circular A-76 and its supplement, comparison of the cost of contracting and the cost of in-house performance shall be performed to determine who will do the work. When conducting standard competitions, agencies must ensure that all costs are considered and that these costs are realistic and fair. - **Retain governmental functions in-house.** Certain functions are inherently governmental in nature, being so intimately related to the public interest as to mandate performance only by federal employees. These functions are not in competition with the commercial sector; therefore, these functions shall be performed by government employees. - **Rely on the commercial sector.** The federal government shall rely on commercially available sources to provide commercial products and services. In accordance with the provisions of Circular A-76 and its supplement, the government shall not start or carry on any activity to provide a commercial product or service if the product or service can be procured more economically from a commercial source. ***Cost Comparisons*** A cost comparison involves developing an estimate of the cost of government performance of a CA and comparing it, in accordance with the requirements of the supplement, to the government's cost for contract performance of the activity. Commercial bids must be at least ten percent below inhouse personnel-related cost. If performance of a CA by DoD personnel cannot be justified under national defense, non-availability of commercial source, or patient care criteria, then a full-cost comparison shall be conducted to determine if performance by DoD employees is justified on the basis of lower cost. **Gifts from Outside Sources** Executive branch employees are subject to restrictions on the gifts that they may accept from sources outside the government. Generally, they may not accept gifts that are given because of their official position or that come from certain interested sources (prohibited sources). Prohibited sources include persons (or an organization made up of such persons) who: - Seek official action by the employee's agency - Do or seek to do business with the employee's agency - Are regulated by the employee's agency - Have interests that may be substantially affected by performance or non-performance of the employee's official duties Exceptions to the ban on gifts from outside sources would allow the acceptance of gifts: - Where the value of the gift is \$20 or less (not to exceed \$50 annually) - Where the gift is based solely on a family relationship or personal friendship - Where the gift is based on an outside business or employment relationship - Where the gift is in connection with certain political activities **Gifts between Employees** Executive branch employees may not make a gift to an official superior, nor can an employee accept a gift from another employee who receives less pay, except in certain circumstances or on certain occasions. On the other hand, there are no restrictions on gifts from superiors to subordinates. On an occasional basis, including occasions when gifts are traditionally given or exchanged, the following individual gifts to a supervisor are permitted: - Gifts other than cash that are valued at no more than \$10 - Food and refreshments shared in the office among employees - Personal hospitality in the employee's home that is the same as that customarily provided to personal friends - Gifts given in connection with the receipt of personal hospitality that is customary to the occasion - Transferred leave provided that it is not to an immediate superior - Events of personal significance such as marriage, illness, or the birth or adoption of a child - Occasions that terminate the subordinate--official superior relationship such as retirement, resignation, or transfer - Employees may solicit or contribute, on a strictly voluntary basis, nominal amounts for a group gift to an official superior on special infrequent occasions and occasionally, for items such as food and refreshments, to be shared among employees at the office. Regardless of the number of DoD employees contributing to a gift or gifts on these occasions, a DoD employee may not accept a gift or gifts from a donating group if the market value exceeds an aggregate of \$300 and if the DoD employee knows or has reason to know that any member of the donating group is their subordinate. The \$10 limitation per subordinate still applies.