GSA Office of Governmentwide Policy

A Special Sectionof Real PropertyPolicysite

Summer 2001

Succession Planning Guide

“An organization’s people --- its human capital --- are its most critical asset in managing for results.”

Comptroller General of the U.S.January 2001

Office of Real Property

IndexA. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . S3

B. Federal Real Property Council Working Group . . . . . . . . . S3

C. Working Group Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . S4

D. Working Group Findings/Lessons Learned. . . . . . . . . . . . . S4

E. Generic Skills Set. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . S6

F. Core Competencies/Skills Set for Managers. . . . . . . . . . . S6

G. Recruiting. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . S6

1. Recruiting Tips and Tools

• Benefits of Federal Employment

• Recruiting Strategy

• Recruiting Tools

H. Agency Programs. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . S8

1. Office of Personnel Management

• Mission

• OPM Service Center

• Intern Programs

• Workforce Planning Model

2. Department of Defense

• Defense Acquisition Workforce Improvement Act (DAWIA)

• Facilities Engineering Career Field

• Defense Acquisition University (DAU)

• Naval Facilities Engineering Command

3. General Services Administration

4. General Accounting Office

5. Department of Energy

6. Social Security Administration

I. Resources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . S12

Real Property Policysite

GSA would like to thank the members of theSuccession Planning Working Group for theirefforts in developing this Guide.

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Succession Planning Guide

Federal Agency Representative E-mail Phone

Central Intelligence Agency Cynthia Ehinger none (703) 874-5879

Department of the Army Elizabeth Fagot elizabeth.l.fagot@hq02.usace.army.mil (202) 761-0483

Department of the Army Julie Jones julie.jones@hqda.army.mil (703) 692-9223

Department of the Army Dale Shaw dale.shaw@hqda.army.mil (703) 692-9244

Department of Energy Michele Borum michele.borum@hq.doe.gov (202) 586-6675

Department of Energy Emma Greenfield emma.greenfield@hq.doe.gov (202) 586-3154

Department of the Navy Joy Bird joy.bird@navy.mil (202) 685-9021

Department of the Navy Scott Whiteford scott.whiteford@navy.mil (202) 685-9206

Department of the Treasury Brenda Hemphill brenda.hemphill@do.treas.gov (202) 622-0057

General Services Administration Mary Ann Hillier maryann.hillier@gsa.gov (202) 208-6139

General Services Administration Andrea Kuhn andrea.kuhn@gsa.gov (202) 208-1237

General Services Administration Marjorie Lomax marjorie.lomax@gsa.gov (202) 501-0379

Office of Personnel Management Steve Van Rees stvanree@opm.gov (202) 606-2200

Social Security Administration Gary Arnold gary.arnold@ssa.gov (410) 965-4272

Social Security Administration Ron Davidson ron.davidson@ssa.gov (410) 965-9004

A. IntroductionWho will succeed our currentgovernment workforce? Withpredictions ranging from one-third toone-half of today’s workers eligiblefor retirement in the next five years,succession planning is a means toaddress what has recently beentermed the “crisis in human capital.”In addition to retirement eligibility,

factors such as downsizing, thelure of private company

benefits, lack of youngerrecruits, and fewer

overall new hireshave all contributedto the currentsituation. Viewingemployees as“human capital”means seeing them

as assets or investments to bevalued and managed, rather than“human resources” which areconsumed with the goal ofminimizing costs. Once anorganization’s employees are viewedas human capital, their value iscritical to the organization’s successand even viability.

Federal Real Property Council Succession Planning Working Group

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Succession Planning Guide

C. Working GroupActivities• Held monthly meetings following

working group inception in July2000

• Outlined agency problems andsituations

• Examined existing programs forrecruiting and training employees

• Evaluated programs outside theFederal Government

• Sought speakers who presentedpossible solutions

of experienced workers andmanagers in the real property field.The working group was chaired byGary Arnold of the Social SecurityAdministration (SSA) andfacilitated by Marjorie Lomax andAndrea Wohlfeld Kuhn of GSA’sOffice of Real Property. Workinggroup members are listed on page S3and can be contacted for agency-specific information.

B. Federal RealProperty CouncilSuccession PlanningWorking GroupThe Federal Real Property Councilidentified succession planning asone of its top challenges and formeda working group composed of federalagency representatives. The workinggroup was chartered to studysuccession planning and developtools and resources which agenciescould use as they face anunprecedented, yet expected exodus

Succession Planning Working Group members (L.-R.) Andrea Kuhn (GSA), Emma Greenfield (Energy), and Marjorie Lomax (GSA) at monthly meeting.

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Succession Planning GuideD. Working GroupFindings/LessonsLearned• Problems originally thought to be

unique were actually commonamong agencies

• Vast amounts of materials,programs and approaches alreadyavailable among agencies are notwidely shared or in many casesnot even known beyond individualagencies

• Development of generic positionsand skills sets was determined tobe the best approach

• By working together, agencies canoften achieve a better return oninvestment, attracting andretaining highly effectiveemployees. However, there is no“one size fits all” solution andagencies may need to actindependently

• The most important skills at theentry level are analysis/problemsolving, communications, andinterpersonal relations

• Additional skills, particularly realestate, finance, and business canbe added through training

• The focus needs to be on a jobthat allows the incumbent to go(and grow) in many directions.The current structure of thepersonnel system’s many andfrequently overlapping positiondescriptions does not alwayssupport that

• It serves no purpose for agenciesto “steal” employees from eachother

• Ideally, agencies should shareresources and consider jointprograms (e.g., assignments forinterns, recruitment)

• The Federal Government is incompetition with all employers,and the earlier it can identifyneeds and initiate recruitment thebetter (for example, waiting until astudent’s senior year of collegewas determined to be too late)

• Evaluate current positions in lightof future requirements; new hiresmay need different skills fromthose whose positions becomevacant

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Succession Planning GuideE. Generic Skills SetThe working group determined thatcompetency in certain skills formeda basis for all positions, regardlessof position description. As shown,the working group ranked generalcommunications and analytical skillshigher than specific, technical skills.The rationale behind this approach isthat entry-level employees with goodcommunications and analytical skillscan be hired and then given on thejob training to gain experience in thetechnicalities of the real estate field.

Working Group Ranking of Skills

• Communication

• Presentation Skills

• Computer Skills

• Problem Solving

• Interpersonal Relations

• Customer Service

• Team Building

• Analytical Skills

• Business Acumen

• Financial Analysis

• Real Estate

• Basic Appraisal Skills

• Acquisition/Disposal Skills

• Management/Leasing Skills

• IntergovernmentalCoordination

• Political Acumen

F. CoreCompetencies/SkillsSet for ManagerialPositions

Working Group Skills for Managers

• Analytical

• Communication (Oral andWriting)

• Contracting

• Customer Service

• Creative Thinking

• Decisiveness

• Flexibility

• Influencing/Negotiating

• Information Management

• Integrity/Honesty

• Interpersonal

• Leadership

• Liaison

• Management

• Organizational Awareness

• Planning/Evaluating

• Policy Development andAnalysis

• Problem Solving

• Real Estate

• Reasoning

• Stress Tolerance

• Teamwork

• Technical Competency

• Vision

The working group built on theconcept of the generic skills set anddeveloped a similar set for thefollowing managerial positions:Building Manager, Project Manager,Asset Manger, Space

Manager/Planner, and Real EstateManagers. A more detailed list ofcompetencies and skills, includingthose found at varying levels and therecommended training for each level,can be found at the working group’ssuccession planning website at:www.gsa.gov/successionplanning

G. RecruitingRecruiting is a key element forstrategic management of humancapital. Working group membersconcluded that recruitment muststart early. Don’t wait to targetcollege students in their senior yearas they may already have previouscommitments. Coop arrangements(work/study) and internships, whichcover several years, are ideal forproviding benefits to both employersand students.

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Succession Planning Guide

“…Strategic human capital management is a pervasive challenge in the Federal Government. At many agencies, human capital shortfallshave contributed to serious programmatic problems and risks.”

Comptroller General of the U.S., January 2001

1. Recruiting Tips and Tools

Benefits of Federal Employment:When seeking new employees,the group concluded agencieswould do well to emphasize thebenefits of Federal employment,including the following:

• Rapid career growth (internprograms and career ladders canprovide advancement to mid-levelmanagement within 3 years)

• Salary supplements includingperiodic pay raises, cost-of-livingincreases, and possible cashawards for superior workperformance

• Special salary rates which may behigher than basic pay, dependingon area, location, or occupationalgroup

• On-the-job as well as classroomtraining

• Student loan repayment program

• Tuition assistance for college-leveland advanced degree programs

• Immediate health and lifeinsurance benefits

• Retirement plan featuringinvestment options and portability

• Generous vacation, holiday andsick leave benefits

• Transportation subsidies

• Flexible work schedules, possiblyincluding alternative workschedules, teleworking from homeor a center, flextime, etc.

• Family-friendly environment,including family leave policy andflexible hours, and in some cases,childcare subsidy and on-site day-care

• Employment transferabilitythroughout the Federal Govern-ment with nationwide locations

• Credit union availability

• Fitness centers and healthprograms

Real Property PolicysiteS8 Real Property PolicysiteS8

Succession Planning GuideRecruiting Strategy: Eachagency needs to develop arecruiting strategy:

• Develop a “brand,” or corporateimage for your agency

• Create an image that students canrelate to (i.e. photos which includeminority groups, females, personswith disabilities, and collegestudents)

• Have brochures and literaturewhich reflect this brand

• Send recent graduates asrecruiters to college campuses

• Dress casually when recruiting atcolleges

• Promote an on-line applicationprocess

• Emphasize Federal employmentbenefits (as shown on page S7)

• Emphasize public serviceopportunities, and the chance to“make a difference”

• Train recruiters

Recruiting Tools: Agenciesshould use a variety of recruitingtools, including:

• Centralized web-based job listings through OPM atwww.opm.gov

• Develop your own agency-specificweb-site with detailed informationon mission, programs, etc.

• Sample agency brochures and ageneric brochure developed by theworking group are available foragency-specific modifications atwww.gsa.gov/successionplanning

• OPM Service Center (see detaileddescription under OPM section)

• Intern Programs (see detaileddescription under OPM section)

H. Agency Programs1. Office of PersonnelManagement www.opm.gov

Mission

The U.S. Office of PersonnelManagement (OPM) supports theFederal Government's ability to havethe best workforce possible to do thebest job possible. OPM leadsFederal agencies in shaping humanresources management systems toeffectively recruit, develop, manageand retain a high quality and diverseworkforce. The agency servesFederal agencies, employees,retirees, their families, and the publicby providing technical assistance,employment information, payadministration, and benefits delivery.

OPM Service Centerwww.opm.gov/employ/

html/servcntr.htm

OPM provides its reimbursablestaffing assistance through anationwide network of ServiceCenters. Each of the Centers

provides advice and assistance in allareas of staffing and human resourcemanagement, including: examiningfor internal and external selection,workforce restructuring anddownsizing, assistance in recruitingand employment information, andtechnical assistance in other areaslike organizational design andsuccession planning.

Intern Programs

• The Student EducationalEmployment Program is designedto help agencies recruit andattract outstanding students at alllevels: high school, vocational andtechnical, associate degree,baccalaureate degree, graduatedegree, and professional degreestudents. Under the StudentCareer Experience Programcomponent, students may beeligible for permanent placementwithin an agency.

• The Federal Career InternProgram (www.opm.gov/careerintern/index.htm) isdesigned to help agencies recruit

Summer 2001 S9

Succession Planning Guide5 Step Workforce Planning Model http://www.opm.gov/workforceplanning/index.htm

1

2

34

5

DEVELOP ACTION PLAN

• Design a Workforce Plan toAddress Skills Gaps

• Set Specific Goals

• Develop HR Infrastructure to Support the Plan

IMPLEMENT ACTION PLAN

• Communicate the WorkforcePlan

• Gain Organizational Buy-In

• Conduct Recruiting, Hiring,and Placement

• Conduct Succession Planning

• Restructure Where Needed

• Implement RetentionStrategies

MONITOR, EVALUATE & REVISE

• Assess Success & Failures

• Adjust Plan as Needed

• Address New Workforce andOrganizational Issues

SET STRATEGICDIRECTION

• Organize and MobilizeStrategic Partners

• Set Vision/Mission/Values/Objectives

• Review OrganizationalStructure

• Conduct Business ProcessReengineering

• Set Measures forOrganizational Performance

• Position HR to be an ActivePartner

SUPPLY, DEMAND &DISCREPANCIES

• Analyze Workforce

• Conduct CompetencyAssessment and Analysis

• Compare Workforce NeedsAgainst Available Skills

and attract exceptional individualsinto a variety of occupations.Intended for positions at gradelevels GS-5, 7, and 9, individualsare appointed to a 2-year intern-ship. Upon successful completionof an internship, interns may beeligible for permanent placementwithin an agency.

• The Presidential ManagementIntern Program (PMI)(www.pmi.opm.gov/) wasestablished by PresidentialExecutive Order in 1977. It isdesigned to attract outstandinggraduate students from a widevariety of academic disciplineswho have an interest in, andcommitment to, a career in the

analysis and management of publicpolicies and programs. It is a twoyear internship program, whichenables graduate degree studentsto be appointed to Federalpositions as PMIs and to also havethe opportunity to be converted toa permanent Federal civil serviceposition following their successfulinternship.

Workforce Planning Model

Recognizing the importance foragencies to begin workforce planningefforts now, the Human ResourceManagement Council and OPMdesigned a Workforce PlanningModel (immediate left) to ensure thatFederal agencies have theinformation and tools necessary todevise successful workforce plans. A new website with retirementstatistics and projections is availableat: www.opm.gov/feddata/retire.

2. Department of Defense

Defense Acquisition WorkforceImprovement Act (DAWIA)

In terms of Succession Planning, asignificant event for members of theDefense acquisition workforce waspassage of the Defense AcquisitionWorkforce Improvement Act (DAWIA)of 1990. The Act calls for profession-alism of the acquisition workforce,including education, training,experience, and career management.

Facilities Engineering Career Field

Currently, a proposal for a newfacilities career field is underconsideration. If approved, this willserve the dual purpose of creating neweducation and training opportunitiesfor employees in facilities relatedcareer fields, and mandatecertification requirements at DAWIA-established levels.

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Defense Acquisition University(DAU) www.dau.mil

The Defense Acquisition University(DAU) provides mandatory,assignment-specific, and continuingeducation courses for military andcivilian acquisition personnel. Itsmission is to provide the acquisition

community with the right learningproducts and services to make smartbusiness decisions.

Naval Facilities EngineeringCommand’s ProfessionalDevelopment Centercmcell.navfac.navy.mil

This three-year intern programprovides training, rotationalassignments and a career ladder withpermanent placement after programcompletion. The program has provenparticularly successful in recruitinggeneralists who can be trained forrealty specialist positions. Unlikeother career fields, there is nocollege degree program that providesspecific training for Department ofDefense (DOD) realty specialistcareer fields. Similar internprograms are operated by other Navyand DOD components and haveproven successful in recruitingrecent college graduates andproviding education and trainingopportunities to ensure competencyand advancement.

3. General ServicesAdministration www.gsa.gov

The General ServicesAdministration (GSA) is addressingsuccession planning by facilitatingworking groups such as the FRPC-sponsored one, and by instituting aneducational and training program foremployees. The Public BuildingsService (PBS) is providingleadership growth opportunities toemployees through PBS Academy,which links training anddevelopmental activities to PBSbusiness goals.

Components include corporatesponsored training (throughuniversities or the Federal ExecutiveInstitute), developmental

assignments, and details to nationaland regional GSA offices, customeragencies, and the private sector.Many of GSA’s Office of RealProperty recent hires are in the 300job series, which has enabled theOffice to hire generalists with variedbackgrounds.

GSA Online University

This Internet portal provides accessto a virtual campus with 300 courses,including basic skills, computersoftware and managerial skills. By using a computer with a modemand internet connection, GSAemployees can register and takecourses online.

Federal Acquisition Institutewww.faionline.com

A selection of online courses isavailable for contract specialists andothers interested in the Federalacquisition process. Currentofferings include ContractingOrientation, Market Research forAcquisition Officers, ContractingOfficer Representative Mentor, andAcquisition Planning for ContractSpecialists. These courses are notlimited to GSA employees.

4. General Accounting Officewww.gao.gov

The General Accounting Office(GAO) is the investigative arm ofCongress. The agency’s mission is tohelp improve the performance andaccountability of the FederalGovernment for the American people.In this context, GAO has brought thecrisis of human capital to theattention of Congress by providingtestimony and issuing reports suchas “Meeting the GovernmentwideHigh-Risk Challenge” and “FederalEmployee Retirements.”

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Succession Planning Guide

Succession Planning Working Group members (facing L.-R.) Cynthia Ehinger (CIA), Steve Van Rees (OPM), and Gary Arnold(SSA), Working Group Chair, at monthly meeting.

5. Department of Energywww.hr.doe.gov/pers

The Department of Energy (DOE)provides the framework for thecomprehensive and balancednational energy program through thedevelopment, coordination andadministration of the energyinitiatives undertaken by the FederalGovernment. The Department isprimarily concerned with the long-term, high-risk, high-payoff researchand development of nuclear and non-nuclear energy technology; themarketing of Federal power; energyconservation; a central energyinformation program andenvironmental restoration and wastemanagement activities. The DOE isalso responsible for the Nation’snuclear weapons program and siterestoration management activities.

In order to address this mission, theDepartment introduced theWorkforce for the 21st CenturyInitiative (Workforce 21). Under thisinitiative, the Department prudentlyand effectively manages its currentresources, and engages in vigorousworkforce analysis and planning forthe future.

The DOE Office of Administration’srecruitment brochure and otherinformation can be accessed at theWorking Group’s SuccessionPlanning website at www.gsa.gov/successionplanning

6. Social SecurityAdministration

The Social Security Administration'sOffice of Facilities Management(OFM) is developing core

competencies, skills sets, traininggoals and career paths for facilitiesoperations and maintenancepositions. At the same time, OFMhas rewritten job descriptions toreflect recent changes in jobrequirements, notably the addition ofCAD capability as a baselinerequirement for virtually all jobs. Thechanges have been successfullynegotiated with the union.

Smarter Solutions

I. Resources

National Academy of PublicAdministration (NAPA)

www.hrm.napawash.org

The Center for Human ResourcesManagement (CHRM) is designed tohelp organizations strengthen theircapacity to develop and delivereffective human resources programs.The Center provides research,information, education, andconsulting services. The WorkingGroup found their publication“Managing Succession andDeveloping Leadership: Growing theNext Generation of Public Services”to be a good resource.

National Academy ofSciences, Federal FacilitiesCouncil

www4.nationalacademies.org/cets/ffc.nsf

The Federal Facilities Council (FFC)is a cooperative association of 21Federal agencies with interests andresponsibilities related to all aspectsof facility design, acquisition,management, maintenance, andevaluation. The FFC's mission is toidentify and advance technologies,processes, and managementpractices that improve theperformance of Federal facilitiesover their entire life-cycle, fromplanning to disposal.

Government Executive Magazine

www.govexec.com/humancapital

The recent series on human capitalprovides information on policy,federal agencies’ approaches, andresources available.

FPMI Communications

www.fpmi.com

International FacilityManagement Association(IFMA)

www.ifma.com

Building Owners andManagers Association(BOMA)

www.boma.org

Building Owners andManagers Institute (BOMI)

207.114.2.97/index.html

National Association of Colleges and Employers

www.naceweb.org/index2.cfm

GSA Office of Governmentwide PolicyOffice of Real Property

U.S. General Services Administration1800 F Street NWWashington DC 20405www.gsa.gov

Within five years, up to half of theGovernment’s 1.6 million full-time employees will be eligible to retire or takeearly retirement, according to OPM data.

This Guide is available online at:

www.gsa.gov/successionplanning