IMPROVING MANPOWER CONTROLS AND UTILIZATION IN THE EXECUTIVE BRANCH

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP70-00211R000500100023-9
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 6
• Document Creation Date: December 19, 2016
• Document Release Date: September 27, 2005
• Sequence Number: 23
• Publication Date: October 31, 1962
• Content Type: MEMO

Approved For ReIW4e '1 1i4-RDP d`0o2 TRR 1000.23-9
OUR.r-_AU OF THE BUDGE-
October 31, 1962
CIRCULAR NO. A-44
Revised
TO THE DADS OF E) CUTIVE DEPARTiZNTS AND ESTABLISE NTS
SUBJECT: Improving manpower controls and utilization in the executive
branch
1. Purpose and coverage. In accordance with the President's instructions.
to limit the number of Federal employees to the absolute minimum necessary
to get the public business done, this Circular provides policies and pro-
cedures for:
a. Improving the general productivity and efficiency of Government
operations,
b. Continuing review and control of manpower utilization, and
c. Making forward projections of manpower requirements.
This Circular does not apply to uniformed military services of the Depart-
ment of Defense or the Coast Guard.
This revision of Circular No. A-44 replaces the following Circulars:
No. A-44 of June 13, 1951, No. A-8 of June 29, 1951, and No. A-24 of
October 1, 1958.
2. General policies. The President has stressed that responsibility for
manpower control and utilization rests with the head of each agency. Each
department and agency taill be etp?eted to undertake vigorous and continued
eff`orts_.;t6-_eL.minate non-essential activities and positions, and to in-
crease productivity by_ improved manpotirer control and utilization and
strengthered supervision.
The need for economy and conservation of scarce manpower skills requires
that the executive branch apps strict tests -essentiality in determining
manpower requirements in each of its activities. The head r departments
Ed agencies and tliexr subordinates must make every effort to meet new
workload requirements through adjustments in existing activities and pro-
cedures, in lieu of adding new employees. Increases in staffing will be
approyed.only ~akere it is clear that essential ctions cannot bper-
formed ~effectivewith existing employees
(No. A-44)
XERO.,.__..
Approved For RI ase',2005 '11/21 : CIA-RDP70-. 2
11 R000 0100023-9
 Approved For Release 2005/11/21 : CIA-RDP70-00211 R000500100023-9
The same forces that are bringing about increased productivity in the
private sector of the economy are applicable to the Government. It will
be assumed that the opportunities to increase productivity in Government
are realized at least to the extent they are in the private sector of the
economy.
3. Agency 2roEams for manpower control and utilization. Each agency
head is responsible for taking necessary action to assure that his agency
has an effective continuing program to Increase-_pKoductivity and control
manpower. A statement describing,_in_-detail.-e,ach_,agency's_program, _ tailored
y`to. is own part icular_neecis[will,,be uom3ttecl"_to'_the ureau,of the- Bud
for review by January 7, 1963. The statement shouldtidentify existing
legislative or administrative restrictions which adversely affect the
agency's ability to carry out the policies and objectives set forth in
this Circular, together with specific recommendations to alleviate or remove
the adverse effects of such restrictions. In addition, the statement will
include a description of the specific measures adopted to carry out the
intent of Section 100ZG of the 'os al Service and Federal' nployees Sa] ary
Act o 192
The basic elements of an effective manpower control program, together with
the possible tools to use in carrying them out, are these:
a. Analysis and appraisal of the work to be performed to assure that
it is essential and will contribute to the accomplishment of agency objec-
tives, and that appropriate targets and priorities are set.
b. Determination of manpower requirements, using principally the budget
4/process but also such tools as work measurement, work standards, productivity
analysis, and manpower and workload reporting.
c. Manpower control systems, using such techniques as manpower
Vperiodlic allocation, tables of organization, reporting systems, special studies,
program reviews, and controls on filling of vacancies.
d. Specific efforts to increase productivity through improvements in
organization, work design, work methods including simpler systems and
,,/mechanization, mathematical programming, supervision, and personnel manage-
ment including skills inventories, employee consultation, training, and
incentive and motivation programs.
"e. Selective test checks to ascertain whether the manpower control
program is achieving the desired results.
It is important that staff competent in the areas listed above be available
to line officials to assist in carrying on planned management improvement
efforts. The staff, in being or planned, for carrying out an agency's man-
power control should be described in the statement submitted to the Bureau
of the Budget.
(No. fi-141.)
x IF,Y ~ocv? (, PPY
Approved For R ase 2005711/21: CIA-RDP70- 2 11 0050100023-9
 Approved For Release 2005/11/21 : CIA-RDP70-00211 R000500100023-9
The staff of the Bureau of the Budget is available to advise agencies' in
their manpower control programs, and to serve as a clearing house for
exchanging information on successful measures to improve aann.gement cnd?
to effect manpower savings. To meet unusual problems where the agency
does not have the expertise nor the financial resources to undertake
special management studies, assistance may be provided from the Appropriation
to the President for Expenses of Management Improvement.
Federal. Executive Boards, established at the direction of the President in
major centers of Federal activity outside of the Washington area, will give
specific attention to exchange of information and cooperative efforts with
respect to manpower utilization and management improvement in field offices.
2. Relation to the review of bugEat estimates. In reviewing budget roquire
ments at all levels, detailed a.alvses will be made of the number of persona
required for both present and proposed activities. The budget process is-an
effective instrument for preventing overstaffing as well as in identifying
work priorities, operating problems, and in appraising efficiency and pro-
ductivity. In reviewing budget estimates, therefore, each responsible
agency official and the Bureau of the Budget will adhere to the following
policies:
a. Existing personnel will be utilized to the maximum extent in
staffing new programs and expansions in existing programs.
b. Staffing requirements will be planned and executed.on the assumption
that improvements in skills, organization, prccedurec, use of equi,_ r.d
supervision will increase productivity continuously and at the sc,.:
maintain adequate quality.
c. Estimates of staffing requirements for on-going as well as now
programs will be fully justified, so far as practicable, by an nr4alysio of
the relationship between the personnel required and the workload to be
performed. In the absence of a workload correlation, the estimates will
show the analytical method used in estimating personnel requirements.
d. Contracts with non-Government firms, institutions, or persons will
be made on the basis of relative efficiency and effectiveness in accomplich-
in? the desired work, and will not be used as a device to reduce or hold down
Government employment when direct Government performance is more effective,
or appropriate.
Each agency's n xacl budget submission will include o. brief factual statement.
describing the actions taken and results achieved by the agency manpower
control and utilization program outlined in this Circular; it should include:
a statement of reductions in manpower requirements achieved during the year,
with specific monetary savings indicated, and the uses to which such savings
'were y4.
(No. >iia)
x Rc
XERO r? t?-
nr,
Xf:FOI XERO;
COPY i665 Y Approved For Release 11/21 : CIA-RDP70-00211 R000500100023-9
 Approved For Release 2005/11/21 : CIA-RDP70-00211 R000500100023-9
In presenting budget estimates to the President,. the Bureau of the Budget
will set forth the employment levels on which the estimates ore based.
Detailed justification requirements are set forth in Circular No. A-ll,
for annual budget estimates, and in Circular No. A-4l, with respect to
supplemental estimates.
5. Estimates of fu',',"_-re 'personnel requirements. -Increased attention will
be given in connection with annual. budget reviews to estimated personnel
requirements projected for future years. These estimates are important
not only for purposes of the Bureau of the Budget but also for estimating
recruitment requirements by the Civil Service Commission and work space
requirements by the General Services Administration. Instructions for
developing projections of future personnel requirements for annual budget
reviews are included in Budget Circular No. A-11, and those for projections
required under Public Law 801, 84th Conress, are-set forth in Budget
Circular No. A-19,
6. Search for better methods. Increased attention will be given by the
departments and agencies, under the leadership of the Bureau of the Budget,
to searching out and applying the most modern and effective means used
either by Government or private enterprise to increase efficiency and output.
The research should include studies in such areas as motivation, organiza-
tion of work, production methods, and methods of managerial control and
leadership. The Bureau will make available throughout the Government the
important findings and conclusions of important management research conducted
within the Goverment.
7. M npo,rer inspections and reviews. The Bureau of the Budget, the Civil
Service Commission, and the departments and agencies will undertake a
systematic program of manpower inspections and reviews. The priority and
scheduling of these inspections will be worked out under the leadership of
the Bureau of the Budget, and will, be carried out by staff of the Bureau,
the Commission, and the agency concerned. The special inquiries into man-
?o,rer utilization practices currently made by the Civil Service Commission
will become a part of this new program. The inspections will be made on a
selective basis which will give priority attention to areas where the most
significant problems and potenticl savings exist. TWhile'every agency cannot
be reviewed each year, it may be desirable to review certain agencies annually
or more frequently. The inspections will be designed to test the effective-
ness of agency systems for manpower analysis and control, and to assist the
departments and agencies in discovering opportunities for better use of man-
power resources that are available. The results of these reviews will, be re-
ported to the head of each agency pre mtly, for immediate attention and such
action as is necessary. The Bureau of the Budget will keep the President
informed of any significant findings and of potentialities for increasing
productivity.
D.WID E. BELL
Director
(No. A-44
6 19uL
xERO xERO xF.RO
ropy ropy ('01''
Approved For Release 2004/11/21 : CIA-RDP70-11R000500100023-9
 Approved For Release 2005/11/21 : CIA-RDP70-00211 R000500100023-9
ATT AC3-D`12~Z
Circular No. A-44
Revised
F3. Position management.
a. Each department and establishment should develop and maintain a
position management system designed to assure that work is organized
and assigned among positions in a manner which will serve mission needs
most effectively and economically. As used in this Circular, position
management includes the evaluation of the need for positions and required
skills and knowledge; and the organization, grouping and assignment of
duties and responsibilities among all positions. The position structure
should be designed to utilize the most effective work processes, equip-
ment, procedures, methods and techniques.
The position management system should be designed to identify,
prevent or eliminate such common faults as unnecessary organizational
fragmentation, excessive layering, excessive use of deputies, assists is
to, and special assistants, improper design of jobs, outmoded work
methods, and improper distribution of manpower resources. Special at-
tention should be given to guarding against contracting out of work
without adequate concern for relative costs and effectiveness.
b. A position management system should be developed which is best
adapted to the needs of a particular agency or program. Provision
normally should be made in each position management system, however,
for the following key elements:
(1) Assignment of responsibility. Responsibility for work
organization and position management should be explicitly assigned to
line managers at appropriate levels in the organization.
(2) Utilization of total staff resources. In carrying out
their responsibilities for effective position management line managers
should utilize budget, management analysis, personnel and other special
staff in the development and continuing operation of the position man-
agement system in the organization. It is especially important that
the work of these staff elements be coordinated and.mutually supporting.
(3) Position authorization. A position authorization and con-
trol procedure should be established to assure that existing and proposed
work organization and staffing arrangements meet the requirements of
good position management. Such authorizations and controls must be
related to maximum numbers and financial allowances determined in the
budget process.
(L) Vacancy control. Before any vacancy is filled or a re-
classification approved, a review should be made to determine whether
the duties of the position can be eliminated, assigned to other posi-
tions, or modified to permit performance at a lower grade.
(No. A-44)
XEPO XERO
COPY copy
Approved For Release 2005711/21: CIA-RDP70-00211 R000500100023-9
 Approved For Release 2005/11/21 : CIA-RDP70-00211 R000500100023-9
(5) Approval of organizational changes. Each proposed change
of organization or position structure should be reviewed and approved
as appropriate from the standpoint of work design, occupational distri-
bution, grade distribution, manpower requirements, and costs.
(6) Reporting. The position management system should provide
for periodic reports for the use of the agency to r ate it possible to
review the effectiveness of the system and to provide essential data
for effective analysis by the agency head and upon request by the Bureau
of the Budget, the Civil Service Commission, and the Congress. While
the frequency of central reporting will vary from agency to agency, the
system should make it possible to provide management either periodically
or upon request the following information:
(a) The number of positions authorized under the
position management system, by grades.
(b) The number of occupied positions, by grades.
(c) Any new arrangements entered into for the
provision of services by contract.
(d) A.n analysis and explanation of any significant
changes in the position structure, together with an
analysis of any longer-term trends indicated.
(7) Special reviews. Unen budget reviews, internal management
appraisals, periodic reports, or other available data indicate that an
organization is not achieving effective position management, action
should be initiated to identify the reasons and bring about changes in
personnel, organization structure, management practices, or work pro-
cesses to achieve improvement.
c. Each department and independent establishment will forward a
description of its position management system to the Bureau of the
Budget by January 1, 1965. For those systems not already in operation,
the time phasing for their installation and the date on which they will
be fully effective will be indicated.
d. Assessments of the effectiveness of its position management
system should be made by the department or establishment' itself, and
will be made by the Bureau of the Budget in its review of budget
estimates, by the Civil Service Commission in its inspection of posi-
tion classific.tion, and as a part of the joint review of management
and manpower utilization made by teams designated by the Bureau of the
Budget, Civil Service Commission, and the agencies under review.
(No. A-44)
Approved For Release 200/11/21 : CIA-RDP70-: O-211F 0005 00100023-9