Stabilization and Reconstruction Staffing - RAND Corporation

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52 Stabilization and Reconstruction Staffing: Developing U.S. Civilian PersonnelSimilar to the issues related to differing application of compensationpolicies discussed above, whereby the General Services Administration’sFederal Travel Regulations and the Department of State’sStandardized Regulations appropriately give agencies latitude in applyingthe regulations, differences in entitlements and compensation forsimilarly situated employees can occur. Many detailees traveled toIraq on temporary-duty travel orders and were never officially detailedto the CPA. The employee’s home organization paid the employee’ssalary and additional compensation, such as eminent-danger pay, foreignpost differential, and overtime. Increased compensation expenses,coupled with mission requirements that did not change just because anemployee was away on detail, reduced the U.S. government’s enthusiasmto provide volunteers.Different agencies also had different policies for leave, especiallyhome and administrative leave. State Department employees had moreleave flexibility during the CPA period than did DoD civilian employees,3161s, or those on IPA assignments—another potential sourceof friction and discontent. However, there is also an argument thatgreater flexibility in incentives is needed to recruit the best people fromthe public or private sectors. 5 We discuss this need in greater detail inChapter Five.Training, Deployment, and RedeploymentBy the time the Department of State assumed responsibility in Baghdad,deployment processing had evolved to an efficient and effectivesystem, although the evolution was not without angst. Civilian andmilitary personnel generally entered Iraq through a central processingcenter in Kuwait, using DoD’s Common Access Card (CAC) anda copy of the official travel orders to enter the country without visas.Deploying civilians processed through military deployment centers ineither Virginia or Texas, but they received little in the way of countryorientation. As organizational responsibility transferred from DoD to5 We use the term public sector to refer to government at the federal, state, and local levels.When we are referring only to the federal government, we use the term U.S. government orfederal government.
Process, Structure, and Management—What Can Be Done Today? 53State, the Department of State implemented a formal predeploymenttraining and information program that included country orientation.Throughout the life of the CPA, redeployment remained an issue.Tours of duty for civilians were flexible. The 3161 employees, primarilybecause they were temporary, could resign or rotate on a whim. Therewas no official process for handing off job assignments or sharing procedures,processes, or insights. These shortcomings could have beenalleviated with a more effective structure and management controlstypically used by established organizations.There are some authorities that could be helpful but that currentlyare not in place. First, the United States has historically fielded lawenforcement officers to SSTR operations through civilian contractors.Police officers who wish to participate in SSTR operations usually haveto leave their home departments to sign up with the federal contractor,and they have no guarantee that they will be able to return to theirhome department when they are done. A statute such as the one thatprotects the jobs and status of military reservists who are called upcould be helpful in recruiting law enforcement professionals for SSTRduties. 6Additionally, pay and incentive rules that prevent some employeesfrom getting the full benefits of additional remuneration typicallyprovided in dangerous operations and overtime pay deserve tobe examined and perhaps modified. For example, the statute that capsthe pay for federal employees at the level of an Executive Level 1 salarycould be waived so that mid- and senior-level personnel could receivethe full percentage of hazardous-duty differential pay offered to otheremployees.Summary of Existing AuthoritiesTable 4.1 summarizes the authorities discussed in this monograph.It is not all-inclusive with regard to federal hiring and compensation.6 For a discussion of the problem of, and potential solutions for, providing professionaltransitional law enforcement capabilities for SSTR operations, see Terrence K. Kelly, Optionsfor Transitional Security Capabilities for America, Santa Monica, Calif.: RAND Corporation,TR-353-A, 2006.
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THE ARTSCHILD POLICYCIVIL JUSTICEED
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Stabilization andReconstruction Sta
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PrefaceThe United States participat
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ContentsPreface ...................
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ContentsviiCHAPTER FIVEConclusions
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Tables3.1. Number of U.S. Governmen
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AcknowledgmentsThe authors acknowle
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AbbreviationsACTAWCCACCFRCJTF-7CMPT
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AbbreviationsxxvMNSTC-IMoDMOINATOND
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