While on the one hand these pressures are designed to
influence staffing so that programs will be conducted in
ways that agree with the desires of the groups exercising
the pressures, on the other hand, the success of programs
frequently depends upon the support of the pressure groups.
Therefore, the agency head needs some way to accommodate
to these pressures.

5. The Government has no assurance that the best available executive

talent is being identified, developed, and utilized. It is generally agreed that the demand for high quality leadership talent in the society as a whole is already greater than the supply. Some leaders feel that important public programs frequently do not meet their objectives partly because some of the executives in those programs lack sufficient managerial skill. The Government must be prepared to develop the talent it needs now and will need in the future.

This problem has several important dimensions:

Many career executives feel frustrated because they cannot
look ahead confidently to progression and career growth in
the programs or organizations that interest them and to
which they believe they can make their best contributions.
Neither can they or their agencies assess their opportunities
or plan their development and training.

Closely related to the above is the lack of clearly identified career fields, promotion ladders, or career development programs. Thus, clear career goals are not available as a basis to recruit, develop, and train executives.

. A meaningful way has not been found to assess and communicate
the quality of an executive's performance or to predict
future performance. Thus, agency heads who are trying to fill
executive vacancies frequently cannot identify potentially
high quality talent and systematically develop this potential.

In most agencies systematic training and development of
executives has not been made an integral part of the total
management process. Thus, executive development frequently
lacks institutionalized continuity and adequate attention
by top agency executives.

6.

Currently, there is inadequate centralized leadership and re-
sponsibility for management of executive resources. Under present
arrangements, the President undoubtedly finds it difficult
to hold his appointees accountable for this. The Government as

The

a whole lacks a system to insure effective, integrated, and coordinated management of executive manpower resources across agency lines. causes underlying this problem are:

Manpower resources, particularly executive resources, do
not receive the degree and level of management attention
that is devoted to financial resources. No single agency
has responsibility for monitoring the total results of ex-
ecutive manpower management. The Civil Service Commission's
responsibilities do not encompass several important personnel
program areas; moreover, the Commission has only limited re-
sponsibility for other programs.

There is no systematic review and analysis to determine the
government-wide effectiveness of the management of executive
manpower. The President does not receive periodic reports
of the stewardship of this resource, nor does he receive
systematic recommendations for needed improvements.

SECTION IV

A PROPOSAL FOR A NEW FEDERAL EXECUTIVE SERVICE WITH PURPOSES AND JUSTI FICATION

To respond to the deeply felt needs for major improvements in the use of the Government's executive manpower resources, it is proposed to establish a Federal Executive Service with the features described below.

Coverage

The Federal Executive Service will include all civilian executives now in the range of the General Schedule grades 16, 17, and 18 and certain other executives falling within the same range under other pay authorities. This coverage will include about 7,000 current executives. (The Appendix describes the size and make-up of the current civilian executive workforce.) From this base, future adjustments of the size of the Service will be made and justified.

The coverage of the Service will be based on level of duties and on salary levels, not on individually classified jobs. It will include all present and future groups of civilian executives in the executive branch, except those specifically excluded in the statute establishing the Service and those subsequently excluded by the President.

The coverage will be extremely broad in order to correct, as far as possible, the existing fragmentation of present appointment authorities and personnel systems.

This broad coverage and elimination of duplication will:

Allow new executives to understand easily and quickly the personnel management system governing their executive manpower. Simplify and reduce the variety of redundant administrative procedures which now accompany executive staffing.

Eliminate differences in rules governing pay, rights, fringe benefits, and recruiting which often cause misunderstandings

among executives in the same organization.

Eliminate the preferential treatment previously given to some programs in requests for executive manpower resources when needs no longer exist.

Foster a government-wide career outlook on the part of executives and potential executives.

Increase opportunities for executive mobility among agencies and programs.

Permit the Administration and the Congress to exercise a more comprehensive and systematic overview of executive manpower management.

Many of the personnel systems which now operate under special authorities will be included in the new Federal Executive Service. These special authorities were originally established to give particular agencies flexibilities for special purposes at specific points in time. The new Federal Executive Service will contain enough flexibilities to make it appropriate to encompass these separate systems.

Exclusions Within the Executive Branch

Seventeen groups of executives within the executive branch will be excluded from the Federal Executive Service, because they have unique problems or needs that make their inclusion under a general Federal Executive Service infeasible at this time. The groups are:

Executive Levels I-V

The Foreign Service of the United States

The Foreign Information Service

The Peace Corps

The Postal Field Service

United States Attorneys, and the Federal Bureau of Investigations,

Department of Justice

Hearing Examiners

Atomic Energy Commission

Central Intelligence Agency

Tennessee Velley Authority

The National Science Foundation

The Council of Economic Advisers

The Department of Medicine & Surgery, Veterans Administration
Federal Deposit Insurance Corporation

Federal Reserve Board

Panama Canal Company
Canal Zone Government

The Office of the Comptroller of the Currency, and the Office of

the Assistant Secretary (International Affairs), Treasury Department.

Agencies Outside the Executive Branch

In addition, executives in agencies outside the executive branch will be excluded. They are:

General Accounting Office
Library of Congress

Government Printing Office

Architect of the Capitol

Botanic Garden

Tax Court of the United States

Administrative Office of the United States Courts
District of Columbia Government

These will be excluded because the Federal Executive Service:

Will be established to provide a more unified, capable, and
harmonious management team for the President in his role as
head of the executive branch.

Assumes the need for a total coordination of executive resource management with the management of other resources in relation to the programs being managed--a task the President cannot perform for the agencies outside the executive branch.

In addition, for positions now subject to Civil Service Commission purview in agencies outside the executive branch, the proposal contemplates establishing an Executive Service in each agency to be administered by that agency.

This will permit flexible interchange of executives among all branches of the Government even though the executive branch does not have operational responsibilities for the other systems.

Size of the Federal Executive Service

The Federal Executive Service will initially consist of approximately 7,000 individuals. The size of this group will change from time to time because of changes in program requirements. No changes will result solely from establishing the new Service.