Space Shuttle: Human Capital Challenges Require Management Attention (Testimony, 03/22/2000, GAO/T-NSIAD-00-133). Pursuant to a congressional request, GAO discussed the human capital challenges facing the National Aeronautics and Space Administration's (NASA) space shuttle program, focusing on: (1) the results of studies on the impact of workforce reductions; (2) NASA's actions following these workforce assessments; (3) challenges NASA faces in the anticipated heavy workload imposed by the International Space Station; and (4) a structured approach NASA can take to analyze human capital challenges. GAO noted that: (1) several studies, one as recent as March 2000, have reported that the shuttle program's workforce has been affected negatively by the downsizing; (2) the studies concluded that the existing workforce is stretched thin to the point where there is just one qualified person in many critical areas; (3) NASA has identified 30 critical areas at Kennedy Space Center that do not have sufficient backup coverage; (4) these areas include shuttle range safety systems and solid rocket booster and external tank electrical systems; (5) the studies found that the workforce is showing signs of overwork and fatigue; (6) the program's workforce age distribution and skill mix now limit opportunities for mentoring newer staff; (7) this jeopardizes the program's ability to hand off leadership roles to the next generation; (8) NASA has responded to the workforce problems in a number of ways; (9) it has terminated its downsizing program and is increasing its budget to provide an additional 95 full time equivalent employees for the shuttle program in fiscal year (FY) 2000; (10) NASA has also increased its FY 2001 budget request to provide an additional 278 full time equivalent employees for the shuttle program; (11) the administrator has directed the agency's managers to consider ways to reduce workforce stress; (12) NASA faces a number of challenges in addressing the shuttle workforce imbalance--especially given the anticipated increased workload; (13) this includes accommodating increased training needs, ensuring adequate staffing levels for its safety upgrade program, attracting and retaining technical skills, dealing with uncertainties related to the future of shuttle privatization and commercialization plans, and achieving a higher projected flight rate; (14) the challenge of ensuring NASA has the proper mix and number of staff to meet shuttle objectives safely will require a structured approach; (15) GAO's internal control standards for the federal government discuss the importance of human capital management in achieving program results; (16) GAO recently issued a checklist for agency leaders to use, in order to help them develop human capital strategies; (17) the checklist helps to establish linkage between human capital programs and the agency's mission, goals, and strategies; (18) GAO has provided copies of the checklist to NASA; and (19) GAO believes NASA's attention to human capital issues will be essential to ensuring the agency's ability to achieve the goals of the shuttle program. --------------------------- Indexing Terms ----------------------------- REPORTNUM: T-NSIAD-00-133 TITLE: Space Shuttle: Human Capital Challenges Require Management Attention DATE: 03/22/2000 SUBJECT: Space exploration Human resources utilization Human resources training Personnel management Federal employees Federal downsizing Reductions in force IDENTIFIER: Space Shuttle NASA International Space Station Alpha Program ****************************************************************** ** This file contains an ASCII representation of the text of a ** ** GAO Testimony. ** ** ** ** No attempt has been made to display graphic images, although ** ** figure captions are reproduced. Tables are included, but ** ** may not resemble those in the printed version. ** ** ** ** Please see the PDF (Portable Document Format) file, when ** ** available, for a complete electronic file of the printed ** ** document's contents. ** ** ** ****************************************************************** GAO/T-NSIAD-00-133 Testimony Before the Subcommittee on Science, Technology, and Space, Committee on Commerce, Science, and Transportation, U.S. Senate For Release on Delivery Expected at 2:30 p.m., EST Wednesday, March 22, 2000 SPACE SHUTTLE Human Capital Challenges Require Management Attention Statement of Allen Li, Associate Director, Defense Acquisition Issues, National Security and International Affairs Division GAO/T-NSIAD-00-133Mr. Chairman and Members of the Subcommittee: We are pleased to be here today to discuss our ongoing work on the National Aeronautics and Space Administration's (NASA) space shuttle program. We are currently responding to the Committee's request to review NASA's plans for meeting current and future human capital needs. We plan to finalize our work and report on this issue in the coming months. As a result, my statement today presents our preliminary observations. NASA budget data shows that, since 1995, shuttle workforce levels have decreased from about 3,000 to about 1,800 full time equivalent employees. NASA based its downsizing efforts on optimistic programmatic assumptions. For example, NASA believed it could reduce its workforce by consolidating contracts for flight, ground, and mission operations under a single private sector contract. In October 1996, NASA awarded this contract. Under the contract, NASA was to provide incentives to eliminate unnecessary work and would no longer be involved in day-to-day shuttle operations. However, because NASA was implementing a number of workforce reduction initiatives, NASA could not directly attribute specific reductions to the contract consolidation. Also, in 1994 NASA froze the shuttle design in the expectation that it would be replaced. NASA now expects to operate the shuttle for at least the next decade. As a consequence, it initiated an upgrade program. In addition, NASA's downsizing coincided with a decreased number of shuttle flights: eight flights in fiscal year 1997, but only four each in fiscal years 1998 and 1999. However, the number of flights is projected to increase substantially as the International Space Station assembly schedule accelerates. NASA plans nine flights in fiscal year 2001. NASA believes this will require more staff. Today we will focus on the shuttle program's civil service workforce. Specifically, we will (1) summarize the results of studies on the impact of workforce reductions, (2) describe NASA's actions following these workforce assessments, (3) identify challenges NASA faces in the anticipated heavy workload imposed by the International Space Station, and (4) suggest a structured approach NASA can take to analyze human capital challenges. RESULTS IN BRIEF Several studies, one as recent as March 2000, have reported that the shuttle program's workforce has been affected negatively by the downsizing, much of which has occurred since 1995. The studies concluded that the existing workforce is stretched thin to the point where there is just one qualified person in many critical areas. NASA has identified 30 critical areas at Kennedy Space Center that do not have sufficient backup coverage. These areas include shuttle range safety systems and solid rocket booster and external tank electrical systems. In addition, the studies found that the workforce is showing signs of overwork and fatigue. For example, indicators including forfeited leave, absences from training courses, and stress-related employee assistance visits are all on the rise. Moreover, the program's workforce age distribution and skill mix now limit opportunities for mentoring newer staff. For example, throughout the Office of Space Flight, which includes the shuttle program, there are more than twice the number of workers over 60 years of age than under 30 years of age. This jeopardizes the program's ability to "hand off" leadership roles to the next generation. NASA has responded to the workforce problems in a number of ways. It has terminated its downsizing program and is increasing its budget to provide an additional 95 full time equivalent employees for the shuttle program in fiscal year 2000. NASA has also increased its fiscal year 2001 budget request to provide an additional 278 full time equivalent employees for the shuttle program. In addition, the administrator has directed the agency's managers to consider ways to reduce workforce stress. NASA faces a number of challenges in addressing the current shuttle workforce imbalance -- especially given the anticipated increased workload. This includes accommodating increased training needs, ensuring adequate staffing levels for its safety upgrade program, attracting and retaining technical skills, dealing with uncertainties related to the future of shuttle privatization and commercialization plans, and achieving a higher projected flight rate. The challenge of ensuring NASA has the proper mix and number of staff to meet shuttle objectives safely will require a structured approach. GAO's internal control standards for the federal government discuss the importance of human capital management in achieving program results. The Comptroller General has brought additional attention to human capital issues and the importance of long-term planning. In this regard, we recently issued a checklist for agency leaders to use, in order to help them develop human capital strategies. This checklist will allow agency managers "to quickly determine whether their approach to human capital supports their vision of who they are and what they want to accomplish, and to identify those...policies that are in particular need of attention." The checklist follows a five-part framework, including strategic planning, organizational alignment, leadership, talent, and performance culture. The checklist helps to establish linkage between human capital programs and the agency's mission, goals, and strategies. We have provided copies of the checklist to NASA. We believe NASA's attention to human capital issues will be essential to ensuring the agency's ability to achieve the goals of the shuttle program. RECENT STUDIES HIGHLIGHT SHUTTLE WORKFORCE PROBLEMS Over the past several years, NASA and its Aerospace Safety Advisory Panel have studied the shuttle program civil service workforce. The studies concluded that the shuttle program workforce has suffered significantly from the downsizing, much of which has occurred since 1995. For example, the studies conclude that the workforce may not be sufficient to support the planned shuttle flight rate and many key positions are not sufficiently staffed by qualified workers. In addition, the studies found that stress levels have reached the point of creating an unhealthy workforce. The results of these studies are highlighted below. *** End of document. ***
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