Nuclear Waste Cleanup: Changes Needed to Address Current and Growing Shortages in Mission-Critical Positions
Fast Facts
The Department of Energy's Office of Environmental Management relies on federal staff to oversee its nuclear waste cleanup from decades of nuclear weapons production and research at locations across the country. Staff at this office oversee cleanup activities such as remediating soil and groundwater and treating radioactive waste.
However, we found that this office continues to be understaffed. At the end of FY 2023, it had 263 vacant positions, and 44% of its staff will be eligible for retirement by 2030.
We recommended, among other things, that this office develop a forward-looking workforce plan.
Office of Environmental Management’s Cleanup Efforts
Highlights
What GAO Found
The Department of Energy's (DOE) Office of Environmental Management (EM) continues to be understaffed. At the end of fiscal year 2023, EM had 263 vacant positions. Moreover, EM had an overall 18 percent vacancy rate for its 14 mission-critical job series (see table). EM's workforce is also aging—44 percent of its staff will be eligible for retirement by 2030. EM workforce management challenges have caused project failures and affected the mission through schedule delays, cost overruns, and workplace accidents, according to DOE assessments. These assessments found that additional failures are likely without efforts to address workforce challenges.
Federal Staff in Selected Mission-Critical Occupations at the Department of Energy's Office of Environmental Management (EM), as of the End of Fiscal Year 2023
|
Occupational group |
Onboard staff in October 2023 |
Vacancies |
Vacancy ratea |
Retirement eligibility rate by 2030a |
|---|---|---|---|---|
|
General Engineering |
251 |
95b |
27% |
35% |
|
Nuclear Engineering |
36 |
5 |
12% |
56% |
|
Contracting |
141 |
38 |
21% |
27% |
|
General Physical Science |
163 |
12 |
7% |
45% |
Source: GAO analysis of Department of Energy and EM information. | GAO-24-106479
aThese values are rounded to the nearest whole percent. Vacancy rate pertains to fiscal year 2023.
bGeneral Engineering includes the vacancies jointly labeled General Engineering/Physical Science. Approximately 55 of these vacancies can be filled by either, while 40 are labeled General Engineering.
EM develops annual staffing plans as requested by DOE but does not have a forward-looking workforce plan. EM, DOE, and others have repeatedly documented the need to strengthen EM's workforce planning because of concerns about mission-critical positions and anticipated retirements. However, EM's attempts to address these issues have proven ineffective. Workforce problems have recurred in multiple locations without EM having taken steps to adopt recommended strategies. By having workforce planning that better follows leading strategic planning practices, such as developing hiring goals and succession planning, EM may be able to mitigate the risks that staffing shortages pose. Further, requiring annual reporting on EM's efforts to address recurring workforce problems could support congressional oversight and help ensure steps are taken to address these problems.
EM has taken some actions to recruit, hire, develop, and retain personnel, but these have been insufficient to counter attrition—10.6 percent in fiscal year 2023. Communication breakdowns between EM and DOE's Shared Service Center have also hampered EM's workforce management efforts and could be improved by better aligning with leading collaboration practices, such as updating documented collaboration agreements.
Why GAO Did This Study
EM relies on federal staff to oversee its nuclear waste cleanup from decades of nuclear weapons production and research at locations across the country. EM's mission includes deactivating and decommissioning contaminated buildings, remediating contaminated soil and groundwater, and treating radioactive liquid waste.
Senate Report 117-130 accompanying S. 4543, a bill related to the National Defense Authorization Act for Fiscal Year 2023 included a provision for GAO to report on EM's workforce capacity. GAO examined whether EM's federal staff levels align with identified needs to meet EM's mission, and the extent to which EM conducts workforce planning and takes actions to recruit, hire, develop, and retain the personnel it needs.
GAO reviewed documents and prior assessments related to EM's workforce management, analyzed human capital data for fiscal years 2014 through 2023, and interviewed DOE and EM officials, including hiring managers.
Recommendations
GAO is recommending that Congress consider requiring EM to report annually on its efforts to address recurring workforce problems. GAO is also making 10 recommendations to EM to improve its workforce management, including that it develop a forward-looking workforce plan and update agreements with DOE's Shared Service Center. EM agreed with all of GAO's recommendations.
Matter for Congressional Consideration
| Matter | Status | Comments |
|---|---|---|
| To support its ability to conduct oversight, Congress should consider implementing an annual reporting requirement to help ensure EM prioritizes workforce management and addresses recurring workforce problems. Such a requirement could include annual reporting on EM's efforts to implement recommendations and strategies, or additional direction on how EM and DOE should address workforce problems that numerous reports have identified. (Matter 1) | As of August 2024, Congress has not passed legislation that would implement this matter. |
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of Energy | The Senior Advisor for EM should revise EM's workforce planning to align with leading practices, including being forward-looking, clearly documenting human capital performance targets and measures, and developing comprehensive succession plans, while also ensuring that internal and external planning documents align. (Recommendation 1) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated it will revise its Strategic Human Capital Plan to align with leading practices, incorporating forward-looking strategies and clearly define performance targets and measures, as well as develop comprehensive succession plans. EM estimated completing this action by December 2026.
|
| Department of Energy | The Secretary of Energy should ensure the Office of the Chief Human Capital Officer and EM review and update their MOA to address key collaboration practices including reviewing and updating guidance, use and access of human capital data, and a regular feedback mechanism to identify and address problems continually as service needs change. (Recommendation 2) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will collaborate with the Office of the Chief Human Capital Officer to review and update the MOA and engage in regular feedback. EM estimated completing this action by September 2025.
|
| Department of Energy | The Senior Advisor for EM should ensure that EM provides guidance and training to hiring and resource managers on the use of all available recruitment, hiring, and retention flexibilities, benefits, and incentives. (Recommendation 3) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will continue to work with the Shared Service Center to provide comprehensive guidance and training to hiring and resource managers regarding the use of all available recruitment, hiring, and retention flexibilities, benefits, and incentives. EM estimated completing this action by September 2025.
|
| Department of Energy | The Senior Advisor for EM should develop and implement a strategy for a multigenerational pipeline, which includes, where appropriate, reclassifying vacant EM positions to cover a broader range of GS levels and prioritizing the use of intern and fellowship programs that provide authority to convert such staff to permanent appointments. (Recommendation 4) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will reclassify vacant positions to cover a broader range of General Schedule levels and recruit skilled personnel across different career stages, while prioritizing the use of intern and fellowship programs that provide authority to convert staff to permanent appointments. EM estimated completing this action by December 2026.
|
| Department of Energy | The Senior Advisor for EM should develop a strategy, based on forwardlooking planning, for using EK and EJ positions across the complex, which, depending on its authority, may be used to propose the authorization of additional EK or EJ positions for EM. (Recommendation 5) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will develop a strategy involving a comprehensive assessment of current staffing needs, future workforce requirements, and emerging environmental challenges to effectively use EK and EJ positions across the complex. EM estimated completing this action by December 2026.
|
| Department of Energy | The Senior Advisor for EM should work with the DOE Office of the Chief Human Capital Officer to request additional direct hire authorities from OPM to include EM's mission-critical job series, as well as positions where EM encounters a severe shortage of candidates. (Recommendation 6) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will work with the Chief Human Capital Officer to request additional direct hire authorities from OPM focusing on mission critical job series and areas where EM has a severe shortage of qualified candidates. EM estimated completing this action by September 2025.
|
| Department of Energy | The Senior Advisor for EM should ensure that EM (1) establishes a training program for each occupation series and (2) collects training data and assesses training curricula, on a recurring basis, to ensure that training aligns with needed competencies. (Recommendation 7) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will establish a comprehensive training program for mission critical occupations and other selected series to equip employees with the necessary skills and competencies and institute a process for collecting training data and assessing training curricula. EM estimated completing this action by December 2027.
|
| Department of Energy | The Senior Advisor for EM should ensure that, as EM develops mentoring and knowledge transfer programs, EM improves access to, and develops information repositories to help ensure a standardized knowledge transfer approach. (Recommendation 8) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will continue to enhance access to and develop comprehensive information repositories that help standardize resources and best practices for effective mentorship and knowledge exchange. EM estimated completing this action by December 2027.
|
| Department of Energy | The Senior Advisor for EM should update and distribute an EM-wide strategy for telework, including remote work that clarifies eligibility and the administrative process for remote work requests. (Recommendation 9) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM said that it will develop a strategy consistent with government-wide and DOE policies concerning telework by establishing transparent and standardized procedures. EM estimated completing this action by December 2025.
|
| Department of Energy | The Senior Advisor for EM should ensure that EM regularly conducts a stay survey to be proactive in retention. (Recommendation 10) |
In a letter responding to our report, the Office of Environmental Management (EM) agreed with our recommendation. EM stated that it will develop stay surveys to proactively identify areas to improve retention. EM estimated completing this action by December 2025.
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