Stabilization and Reconstruction Staffing - RAND Corporation

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16 Stabilization and Reconstruction Staffing: Developing U.S. Civilian PersonnelAccording to the GAO, although the total number of CPA employeesfluctuated, the composition of personnel, on average, remained relativelyconstant: 9••••Approximately 28 percent of the staff members was militarypersonnel.Approximately 13 percent was from other coalition countries.Approximately 26 percent was civilians from numerous U.S. governmentagencies, including the Department of Defense.About 25 percent was contractors and temporary employees hiredunder Section 3161 of Title 5, United States Code (5 USC 3161).These statistics indicate that the U.S. government supplied justover half (26 percent from U.S. government agencies and 25 percentfrom temporary hires) of those actually deployed under its mode ofoperation for Iraq and used other sources to field the rest of its staff,including military manpower and contributions from allies and coalitionpartners. As a percentage of need, the number is actually far lower,considering that at its maximum the CPA was never staffed to its articulatedrequirement. 10To begin to understand why the U.S. government did not recruitthe needed personnel requires a basic understanding of how federalgovernment personnel systems work. Government personnel systemsrespond to documented (i.e., a job description exists) and validated (i.e., aformal determination that the position is needed and properly defined)requirements placed on them by their parent agencies. Specifically, avalidated request that describes a position (e.g., skills required, grade9 U.S. Government Accountability Office (GAO), Rebuilding Iraq: Resource, Security, Governance,Essential Services, and Oversight Issues, Report to Congressional Committees, Washington,D.C.: GAO-04-902-R, June 2004.10 These requirements were often not validated, thus putting no demand on the U.S. governmentpersonnel systems. GAO numbers do not add to 100 percent; the report provides noexplanation about the supplier of the residual 8 percent of personnel. Furthermore, as notedpreviously, estimates are that the CPA staff was never above 58 percent of requirements,indicating that the civilian personnel system never produced more than approximately 28percent of the required personnel.
Motivation and Approaches 17level, duration) sets in motion the machinery to advertise for and hiresomeone to fill that billet, which may include candidates from withinthe government personnel system, as well as from the private sector.The fact that the CPA was a temporary organization with no definedstaffing roster, and therefore no documented and validated requirements,to some extent explains why government personnel systems didnot supply the needed staff.VolunteersThe performance of U.S. government personnel systems also raisesanother important issue: Why did government employees, particularlythose from DoD, which was the parent organization for the CPA, notvolunteer to go to Iraq in larger numbers? Indeed, interviews with careerDoD employees indicate that not only did DoD offices not encouragepeople to volunteer, but some offices actually discouraged themfrom going and denied them benefits, such as overtime pay, affordedto government employees from other agencies. 11 Similarly, an employeefrom a domestic U.S. government agency described his agency’s elaborateefforts to keep him from deploying at all, as well as its concertedefforts to make him return before the end of his tour with the CPA. 12Apparently, the bureaucratic and tactical organizational considerationsof running some individual offices within DoD overshadowed the U.S.strategic policy goal of achieving success in Iraq.More generally, our research indicates that there were no governmentwidepolicies for recruiting and retaining personnel from withinthe government for duty with the CPA, and even that some departmentsand agencies, to include DoD, either did not have uniform policiesand procedures for personnel matters (e.g., overtime, bonuses), ordid not apply them. Furthermore, there does not appear to have beena single human-resources office charged with managing the totality ofHR functions for the CPA, which was instead managed from the temporaryoffice established in the Pentagon (CPA Rear) with assistance11 Interviews with two OSD employees, October 2004.12 Interview with a U.S. government employee, October 2004.
Page 1 and 2: THE ARTSCHILD POLICYCIVIL JUSTICEED
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Page 5 and 6: PrefaceThe United States participat
Page 7 and 8: ContentsPreface ...................
Page 9: ContentsviiCHAPTER FIVEConclusions
Page 13: Tables3.1. Number of U.S. Governmen
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Page 23 and 24: AcknowledgmentsThe authors acknowle
Page 25 and 26: AbbreviationsACTAWCCACCFRCJTF-7CMPT
Page 27 and 28: AbbreviationsxxvMNSTC-IMoDMOINATOND
Page 29 and 30: CHAPTER ONEThe ProblemThe United St
Page 31 and 32: The Problem 3• How long are perso
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Page 37: The Problem 9sets of CPA civilian s
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Select BibliographyBinnendijk, Hans
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