Information Technology: Agencies Need to Fully Implement Key Workforce Planning Activities
GAO-20-129
Published: Oct 30, 2019. Publicly Released: Oct 30, 2019.
Fast Facts
Identifying skill gaps and staffing needs is key to addressing the federal government’s IT workforce challenges.
We evaluated how major executive agencies implemented the 8 IT workforce planning practices in our framework, like recognizing key skills employees will need and planning for them.
Agencies made the most progress with 3 practices, including assessing gaps in skills and staffing.
We recommended that three-quarters of the agencies fully implement the practices to anticipate and respond to changing staffing needs and to control risks with critical IT systems. We made the same recommendation to the remaining agencies in 2016 and 2018.
Federal agencies need to identify skill gaps within their workforce to anticipate and respond to changing needs and critical risks.
A man looking at a computer screen.
Highlights
What GAO Found
Federal agencies varied widely in their efforts to implement key information technology (IT) workforce planning activities that are critical to ensuring that agencies have the staff they need to support their missions. Specifically, at least 23 of the 24 agencies GAO reviewed partially implemented, substantially implemented, or fully implemented three activities, including assessing gaps in competencies and staffing. However, most agencies minimally implemented or did not implement five other workforce planning activities (see figure).
Agencies’ Overall Implementation of the Key Information Technology (IT) Workforce Planning Activities
Agencies provided various reasons for their limited progress in implementing workforce planning activities, including competing priorities (six agencies), and limited resources (three agencies). Until agencies make it a priority to fully implement all key IT workforce planning activities, they will likely have difficulty anticipating and responding to changing staffing needs and controlling human capital risks when developing, implementing, and operating critical IT systems.
Why GAO Did This Study
The federal government annually spends over $90 billion on IT. Despite this large investment, projects too frequently fail or incur cost overruns and schedule slippages while contributing little to mission-related outcomes. Effectively implementing workforce planning activities can facilitate the success of major acquisitions.
GAO was asked to conduct a government-wide review of IT workforce planning. The objective was to determine the extent to which federal agencies effectively implemented IT workforce planning practices. To do so, GAO compared IT workforce policies and related documentation from each of the 24 Chief Financial Officers Act of 1990 agencies to activities from an IT workforce planning framework GAO issued. GAO rated each agency as having fully, substantially, partially, minimally, or not implemented for each activity. GAO supplemented its reviews of agency documentation by interviewing agency officials.
Recommendations
GAO is making recommendations to 18 of the 24 federal agencies to fully implement the eight key IT workforce planning activities. Of the 18 agencies, 13 agreed with the recommendations, one partially agreed, three neither agreed nor disagreed, and one disagreed with the findings and provided evidence which led to a modification to its recommendation, as discussed in this report. For all of the remaining recommendations, GAO continues to believe that they are all warranted.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of Agriculture | The Secretary of Agriculture should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 1) |
We reported that Agriculture had not fully implemented the eight key IT workforce planning activities. As of April 2022, Agriculture provided evidence that it had fully implemented them For example, in March 2022, the agency provided documentation showing that it had completed competency requirements for most of its IT workforce. In addition, Agriculture provided evidence that it had assessed competency gaps for its IT work roles, and had developed strategies and plans to address identified gaps. Moreover, in April 2022, the agency demonstrated that it had taken steps to implement the strategies and plans, and had monitored and reported on progress in addressing the gaps. As a result of its actions, Agriculture has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Education | The Secretary of Education should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 2) |
We reported that the Department of Education had not fully implemented seven of the eight key IT workforce planning activities. As of August 2024, the agency provided evidence that it had fully implemented them. For example, in April 2023, the agency demonstrated that it had developed an IT workforce planning process. In addition, in December 2023, the agency provided evidence that it had assessed competency and staffing needs regularly. In August 2024 the agency provided evidence that it had assessed gaps in competencies. Further, the agency has taken steps to develop strategies and plans to address gaps, implement activities that address gaps, and to monitor and report on progress in addressing gaps. As a result of its actions, Education has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Energy | The Secretary of Energy should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 3) |
We reported that the Department of Energy had not fully implemented the eight key IT workforce planning activities. As of March 2023, the agency provided evidence that it had fully implemented them. For example, in April 2021, the agency provided evidence that it had developed a workforce planning process. In addition, in March 2023, Energy provided evidence that it had developed competency requirements. Further, the agency has taken steps to assess gaps in competencies and staffing, develop strategies and plans to address gaps, implement activities that address gaps, and to monitor and report on progress in addressing gaps. As a result of its actions, Energy has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Homeland Security | The Secretary of Homeland Security should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 4) |
We reported that the Department of Homeland Security (DHS) had not fully implemented the eight key IT workforce planning activities. As of December 2023, the agency provided evidence that it had implemented them. For example, in December 2023, the agency provided evidence that it had established a workforce planning process. The process included roles and responsibilities for identifying strategic staffing priorities. In addition, in March 2021, DHS provide evidence that it had developed competency requirements for all IT roles. Further, the agency provided evidence that it had fully implemented the activities to assess gaps in competencies and staffing, develop strategies and plans to address gaps in competencies and staffing, implement activities that address gaps, monitor the agency's progress in addressing competency and staffing gaps, and report to agency leadership on progress in addressing competency and staffing gaps. As a result of its actions, DHS has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Housing and Urban Development | The Secretary of Housing and Urban Development should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 5) |
As of April 2022, the Department of Housing and Urban Development (HUD) has fully implemented the seven key IT workforce planning activities that we reported it did not fully implement. Specifically, HUD has fully implemented the activities to establish and maintain a workforce planning process, assess competency and staffing needs regularly, assess gaps in competencies and staffing, develop and implement strategies and plans to address gaps in competencies and staffing, and to monitor and report on the agency's progress in addressing gaps. For example, in April 2022, HUD provided its updated IT workforce plan, which addressed all key IT workforce planning activities. As a result of its actions, HUD has improved its capability to anticipate and respond to changing staffing needs and to mitigate human capital risks when developing, implementing, and operating critical IT systems.
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| Department of the Interior | The Secretary of the Interior should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 6) |
We reported that the Department of Interior had not fully implemented the eight workforce planning activities. As of May 2023, the agency provided evidence that it had fully implemented all of the eight key IT workforce planning activities that we reported it did not fully implement. In particular, in March 2022, Interior provided evidence that it had established a workforce planning process, developed competency and staffing requirements, assessed competency and staffing needs regularly, and assessed gaps in competencies and staffing. In addition, in April and May 2023, the agency provided evidence that it had developed and implemented plans to address gaps, and monitored and reported on progress in addressing the gaps. As a result of its actions, Interior has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Justice | The Attorney General should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 7) |
We reported that the Department of Justice (DOJ) had not fully implemented the eight key IT workforce planning activities. As of January 2024, the agency provided evidence that it had implemented them. For example, the agency established a Human Capital Operating Plan in fiscal year 2022. In the plan, the agency established goals and strategies for addressing gaps for the agency's IT workforce. In addition, in January 2024, the agency provided evidence that it had performed a workforce skill gap assessment for fiscal year 2023, which included the establishment of competency requirements. Further, in October 2023, the agency provided evidence that it had assessed IT workforce roles in critical need, and had developed, implemented strategies to address the gaps. In addition, the agency provided evidence that it had monitored and reported to agency leadership on progress in addressing the gaps. As a result of its actions, DOJ has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Labor | The Secretary of Labor should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 8) |
As of March 2022, Labor has taken steps to implement each of the eight key IT workforce planning activities, but has not yet fully addressed them. Specifically, Labor identified several competency gaps as part of a May 2018 workforce supply analysis; however, it did not provide documentation of its competency requirements, or of its strategies and plans to address the gaps. In addition, in December 2019, Labor provided evidence that it had developed strategies and plans to address gaps in staffing, had taken steps to implement the strategies, and had monitored and reported on progress in implementing the strategies. In September 2022, Labor described its efforts to implement the activities, but did not provide supporting documentation. In December 2023, the agency provided an updated positional description for its IT program manager role. However, as of March 2024, the agency has not provided evidence that it has developed competency requirements for most of its IT workforce. Until Labor develops these requirements, it will be unable to fully implement the remaining practices. We will continue to monitor the agency's efforts to address our recommendation.
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| Department of State | The Secretary of State should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 9) |
In October 2019, we reported that the Department of State had not fully implemented seven of the eight key IT workforce planning activities. In July 2022, we issued a report on State's IT Workforce (GAO-22-105392). In this report we noted that while the agency had made progress in implementing the seven activities, it had not yet fully implemented them. As of August 2024, agency has taken actions to fully implement each of the activities. For example, in December 2023, the agency provided its IT strategic workforce plan, which documented the agency's workforce planning process. Further, the agency provided an updated competency gap assessment study which also defined strategies and plans to address competency gaps. In August 2024, the agency provided evidence that it had taken steps to implement the strategies and plans, and had monitored and reported on progress in addressing gaps to agency leadership. As a result of its actions, State has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Department of Veterans Affairs | The Secretary of Veterans Affairs should ensure that the agency fully implements each of the five key IT workforce planning activities it did not fully implement. (Recommendation 10) |
We reported that VA had fully implemented three IT workforce planning activities-developing competency and staffing requirements, assessing competency and staffing needs regularly, and assessing gaps in competencies and staffing. As of August 2021, VA provided documentation demonstrating that it had fully implemented the remaining five activities. For example, regarding the activity to establish and maintain a workforce planning process, in August 2021, the agency provided its Human Capital Strategic Plan for Fiscal Years 2021 through Fiscal Year 2024. The document addressed how the agency planned to implement the workforce activities, including those that we reported VA had not fully implemented, such as the development of plans to address identified gaps, and reporting to agency leadership on progress in addressing gaps. In addition, regarding the four activities relating to staffing gaps-developing strategies and plans to address gaps, implementing activities to address gaps, monitoring the agency's progress in addressing gaps, and reporting to agency leadership on progress in addressing gaps- VA provided documentation demonstrating that it did not have any projected staffing gaps based on its budget allocation. However, VA identified projected staffing requirements through fiscal year 2026, and used them as a basis to request additional funding. As a result of its actions, VA has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Environmental Protection Agency | The Administrator of the Environmental Protection Agency should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 11) |
As of October 2022, the Environmental Protection Agency (EPA) had taken actions to fully implement each of the eight IT workforce planning activities that we reported it did not fully implement. Specifically, in October 2021, the agency provided documentation of competency requirements for work roles of critical need, and documentation showing that the agency had assessed for competency and staffing gaps. In addition, the agency developed strategies and plans to address the gaps, took steps to implement the strategies and plans, and monitored and reported on its implementation progress to agency leadership. Further, in October 2022, the agency provided evidence that it had established a workforce planning process. As a result of its actions, EPA has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| General Services Administration | The Administrator of the General Services Administration should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 12) |
GSA took actions to implement the recommendation. Specifically, in January 2020, GSA established an IT workforce plan that addressed the key IT workforce planning activities. In addition, in November 2020, the agency provided documentation of its updated competency requirements. Further, in its 2019 and 2020 reports to the Office of Personnel Management on Work Roles of Critical Need, GSA identified competency and staffing gaps, and strategies and plans to address them. Finally, GSA monitored and reported on progress in implementing the plans. As a result of its actions, GSA has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| National Science Foundation | The Director of the National Science Foundation should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 13) |
We reported that the National Science Foundation (NSF) had not fully implement the eight key IT workforce planning activities. As of May 2022, the agency provided evidence that it had fully implemented the eight activities. For example, in March 2021, the agency provided evidence that it had developed an IT workforce planning process, competency requirements for most of its IT workforce, performed a gap assessment, and developed strategies and plans to address the gaps. Further, in May 2022, NSF provided evidence that it had taken steps to implement strategies and plans to address gaps, and had monitored and reported on progress. As a result of its actions, NSF has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems
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| Nuclear Regulatory Commission | The Chairman of the Nuclear Regulatory Commission should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 14) |
We reported that the Nuclear Regulatory Commission (NRC) had not fully implemented seven of the eight key IT workforce planning activities. As of October 2023, NRC provided evidence that it had fully implemented them. For example, the agency has identified certain competency gaps, and has developed and taken steps to implement strategies and plans to address them. In addition, the agency has monitored and reported on progress in addressing the gaps. As a result of its actions, NRC has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Office of Personnel Management |
Priority Rec.
The Director of the Office of Personnel Management should ensure that the agency fully implements each of the eight key IT workforce planning activities it did not fully implement. (Recommendation 15) |
OPM agreed with this recommendation. As of February 2023, OPM had implemented six of the eight recommended IT workforce planning activities-developing competency and staffing requirements; assessing gaps in competencies and staffing; developing strategies and plans to address gaps in competencies and staffing; implementing activities that address gaps; monitoring progress in addressing gaps; and reporting to agency leadership on progress in addressing gaps. In March 2024, OPM stated that it expects to finalize a workforce plan by the end of fiscal year 2024, and assess competency needs by the end of fiscal year 2025. Completing these activities would provide OPM greater assurance that it has the IT staff with the necessary knowledge, skills, and abilities to support its mission and goals.
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| Small Business Administration | The Administrator of the Small Business Administration should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 16) |
As of October 2022, the Small Business Administration (SBA) had taken actions to fully implement each of the eight IT workforce planning activities that we reported it did not fully implement. Specifically, in October 2022, the agency provided evidence that it had established a workforce planning process, assessed competency needs, and performed competency gap assessments periodically. For example, the agency performed a competency gap assessment in fiscal year 2021 for its IT staff. In addition, the agency provided evidence that it had developed strategies and plans to address identified gaps, taken steps to implement them, and monitored and reported on progress. As a result of its actions, SBA has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| Social Security Administration | The Commissioner of the Social Security Administration should ensure that the agency fully implements each of the five key IT workforce planning activities it did not fully implement. (Recommendation 17) |
We reported that SSA had fully implemented the IT workforce planning activities associated with developing competency and staffing requirements, assessing competency and staffing needs regularly, and assessing gaps in competencies and staffing. As of April 2021, the agency had taken several actions to fully implement the remaining five activities. For example, the agency issued its IT Workforce Strategy for Fiscal Years 2019 through Fiscal Year 2022, which replaced the agency's previous workforce planning process. The strategy included areas not previously addressed, such as how the agency intended to report to agency leadership on progress in addressing gaps, and how the agency would perform the workforce planning activities on an ongoing basis. In addition, SSA developed strategies and plans to address gaps as part of its July 2020 Recruitment Hiring Strategic Plan and its September 2020 Work Roles of Critical Need report to the Office of Personnel Management. SSA also took steps to implement the strategies and plans, and monitored and reported on its implementation progress to agency leadership. As a result of its actions, SSA has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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| U.S. Agency for International Development | The Administrator of the U.S. Agency for International Development should ensure that the agency fully implements each of the seven key IT workforce planning activities it did not fully implement. (Recommendation 18) |
We reported that the U.S. Agency for International Development (USAID) had fully implemented the activity to develop competency and staffing requirements. As of February 2022, USAID had taken several actions to fully implement the seven key IT workforce planning activities that we reported it did not fully implement. For example, in April 2020, USAID issued its IT Workforce Planning Playbook that documented the agency's workforce planning process. Further, USAID developed a IT workforce competency gap assessment report that identified gaps, and training recommendations for the highest priority gaps. Moreover, between January and February 2022, the agency provided evidence of actions it had taken to address staffing gaps, monitor progress in addressing competency and staffing gaps, and report to agency leadership on progress in addressing the gaps . As a result of its actions, USAID has improved its capability to anticipate and respond to changing staffing needs and to control human capital risks when developing, implementing, and operating critical IT systems.
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