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					   Trust Management Improvement Project


                        M E NT        TH
                    T                      E

                                               I NT
        U S DEP

                                                   ER IOR

                    M                      9
                             CH 3, 1 8 4

                    February 2000


                    WORKFORCE PLANNING

                        TABLE OF CONTENTS
EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

OBJECTIVE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

RESPONSIBILITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

THE PLANNING PROCESS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

TIMELINES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

RELATIONSHIP TO CURRENT STAFFING PLANS . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

APPENDIX . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

PRELIMINARY REVIEW METHODOLOGY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
     Organization, Functions and Staffing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
     Strategic Workforce Planning Actions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
     Policy and Procedural Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

PRELIMINARY REVIEW FINDINGS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
     Minerals Management Service, Royalty Management Program (RMP) . . . . . . . . . . 9
     The Office of Special Trustee (OST) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
     Office of Hearings and Appeals (OHA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
     Bureau of Lands Management (BLM) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
     Bureau of Indian Affairs (BIA) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Reference Documents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
EXECUTIVE SUMMARY                                With respect to future staffing, it is expected
                                                 that staffing needs will fluctuate from year to
In the matter of Cobell v. Babbit, the United    year as activities related to trust management
States District Court for the District of        business functions are, first, intensified and,
Columbia ordered the Department of the           then, routinized. Accordingly, an annual
Interior to correct four (4) breaches of         planning effort is needed to identify future
statutory trust duties contained in the Indian   staffing needs which would feed into the
Trust Fund Management Reform Act of              annual budget cycle. This document outlines
1994. This plan focuses on the                   the process for such planning to proceed
Department’ actions to address the fourth        over the next two years in preparation of the
breach which concluded that Interior has no      FY 2002 and FY 2003 budgets.
written policies and procedures for staffing
of trust management functions.                   Through application of workforce planning
                                                 methodology, organizations will validate
The primary organizations with trust             and/or update their existing workforce plans,
management business functions are:               or initiate a comprehensive process that
                                                 provides a framework for making staffing
! Bureau of Indian Affairs (BIA)                 decisions and ensuring the right number of
                                                 people with the right competencies are in the
! Minerals Management Service, Royalty           right jobs at the right time. The effort will be
   Management Program (MMS-RMP)                  coordinated by a project manager, under the
                                                 leadership of the Director, Office of
! Office of the Special Trustee (OST)            Personnel Policy, and will involve each
                                                 relevant organizations’human resources
! Office of Hearings and Appeals (OHA)           (HR), strategic planning, budget and
                                                 information technology staff, and line
! Bureau of Land Management Minerals             managers.
   Realty and Resource Protection Office
   (BLM-MRRPO)                                   In preparation for FY 2002 and FY 2003
                                                 budget submissions, organizations will
A preliminary organizational and staffing        conduct planning activities independently or
review conducted by the Office of Personnel      with contractor assistance, in accordance
Policy (PPM) revealed that Interior’  s          with set timelines consistent with the budget
primary trust management organizations are       development schedule.
at various stages in workforce planning to
ensure efficient organizational structures and   Congress will enact the FY 2001 budget
effective staffing of trust management           appropriations in the fall of 2000, in the
business functions. (See Appendix                midst of the workforce planning cycles for
“Preliminary Review Findings.”) The review       the FY 2002 and FY 2003 budget. Current
also indicates, in general, no requirement for   plans include hiring during FY 2000 and FY
new workforce policies. However, BIA will        2001 in accordance with the
have to issue regulations before any attorney    Congressionally-enacted FY 2000 budget
decision-makers can formally assume their                           s
                                                 and the President’ proposed budget for FY
tasks.                                           2001, consistent with existing workforce

It is anticipated that over 400 additional
employees will be hired over the next year
and a half to staff trust fund improvement

                                             This plan focuses on The Department of
the Interior’ actions to address the fourth      staff on board with the right mix of skills
breach of statutory trust duties contained in    from year to year requires Congress to
the Indian Trust Fund Management Reform          appropriate sufficient funds. Accordingly,
Act of 1994. In its December 21, 1999,           the workforce planning actions must be
order, the United States District Court for      undertaken annually and tied to the annual
the District of Columbia identified this         budget cycle.
breach as, “Interior has no written policies
and procedures for staffing of trust             This document outlines the process and time
management functions.”                           line for an annual strategic workforce
                                                 planning effort to ensure future staffing
Workforce planning activities to ensure          needs are systematically identified and
efficient organizational structures and          included in annual budget cycles. The
effective staffing patterns in future trust      annual planning effort will focus on the
management business functions have begun         number of employees required, on the
at least to some degree and are at various       appropriate mix of skills, and on the
stages of completion in the primary              adequacy of trained staff to conduct the trust
organizations responsible for trust              management business functions. This
management business functions. These             information will also be useful to the Special
organizations are:                               Trustee prior to any certification of the
                                                 adequacy of the Departmental budget plan
! Bureau of Indian Affairs (BIA)                 related to trust management business
! Minerals Management Service (MMS),
   Royalty Management Program (RMP)              OBJECTIVE

! Office of the Special Trustee (OST)            The objectives of this plan are: (1) to ensure
                                                 adequate FTE requirements and associated
! Office of Hearings and Appeals (OHA)           funding are reflected in the budget
                                                 development process to meet the full staffing
! Bureau of Land Management (BLM),               needs of trust management business
   Minerals Realty and Resource Protection       functions consistent with statutory
   Office (MRRPO) and Field Staff                requirements; and (2) to ensure workforce
                                                 planning is done in a timely fashion and that
                                                 there is consistency, where appropriate,
It is expected that staffing needs will          among the organizations.
fluctuate from year to year as activities
associated with trust management business        RESPONSIBILITY
functions are first intensified and then
routinized. Also, changes in the nature of       The planning process outlined in this
business activities may also affect the level    document will be undertaken by appropriate
and mix of skills needed, for instance, as the   line managers in the trust management
systems architecture development process         organizations and a team of representatives
proceeds from planning to implementation.                                        s
                                                 from each affected organization’ strategic
                                                 planning, budget, information technology
However, ensuring that there are adequate        and human resource offices. The entire

effort will be coordinated and managed by a       then, plans are developed to make the
Project Manager under the guidance of the         transition from the present workforce to the
Director of the Department’ Office of             future workforce.
Personnel Policy. A member of the
Department’ Office of Planning and                TIMELINES
Performance Measurement will also serve on
this team.                                        The timelines in this plan have been
                                                  developed with the recognition that the
THE PLANNING PROCESS                              acquisition of staffing is dependent upon
                                                  obtaining the necessary appropriations from
The workforce planning effort outlined here       Congress. Accordingly, the results of the
will help inform the bureaus and offices in       annual planning process should fold into the
making allocation and other staffing              annual budget cycle in a timely fashion.
decisions over the course of the next year as
well as help prepare a better foundation for      The FY 2001 budget has already been
assuring that budget requests take into           submitted by the President to Congress. The
account all staffing needs.                       next regular budget into which new funding
                                                  requests for staff can be incorporated is for
Human Resource Management staff from the          FY 2002.
Department’ Office of Personnel Policy
(PPM) are leading the trust management            Planning for trust-related staffing for the
organizations in applying the four-module                     s
                                                  President’ FY 2002 budget submission to
Strategic Workforce Planning Model shown          Congress, which would occur in February
in the illustration.                              2001, must be completed within Interior in
                                                  June 2000 to be factored into the
The model relies on strategic analysis of                       s
                                                  Department’ annual budget review process,
present workforce skills and competencies,        leading to a September submission to the
identification of organizational objectives       Office of Management and Budget. Since
and the workforce skills and competencies         this does not allow a substantial amount of
needed to achieve them. Next, the strength        time for FY 2002 planning, these activities
and competencies of the present workforce         will focus on developing initial projections of
are compared to what are needed for the           workforce needs based on current workforce
future in order to identify gaps and surpluses;   and workload functions. The planning
                                                  activities for FY 2003 will allow more
                                                  elaborate comparative analysis of alternative
                                                  approaches for meeting trust responsibility

                                                  In preparation for FY 2002 and FY 2003
                                                  budget submissions, organizations will
                                                  conduct planning activities themselves or
                                                  with contractor assistance, in accordance
                                                  with the timelines established in the table
                                                  below. This division of work between in-
                                                  house and contract efforts is based on the

Preliminary Review Process undertaken by                  Forecast Future: Examine                  5/1/00 -
                                                          organizational objectives and             10/30/00
the Office of Personnel Policy, and is                    identify workforce competencies
                                                          needed to achieve them (Project
described in the Appendix of this report.                 Manager/Trust Managers)
Parties responsible for implementing the                  Hire personnel in accordance with         10/1/00 -
                                                          FY 2001 budgets appropriated by           9/30/01
activities and ensuring that deadlines are met            Congress, consistent with existing
                                                          workforce plans (Trust
are indicated in parentheses.                             Managers/Servicing HR Office)
                                                          Identify competency gaps and              11/1/00 -
                                                          surpluses (Project Manager/Trust          12/31/00
                                                          Managers) based on FY 2001
                                                          appropriations from Congress
   Actions and Timelines for Workforce Planning
                                                          Develop plan to transition from           1/1/01 -4/31/01
                                                          workforce per the FY 2001 enacted
              ACTION                   TIMELINES          budget to future workforce (Project
                                                          Manager/Trust Managers/Servicing
 Conduct preliminary workforce         1/5/00 -           HR Office)
 planning review in trust              2/29/00
 management organizations and                             Develop budget recommendations to         5/1/01 - 6/1/01
 determine workforce planning                             reflect efficiencies or further
 requirements and schedule (Office                        requirements identified through
 of Personnel Policy/Trust                                business process reengineering and
 Managers))                                               needed improvements based on
                                                          other trust-related activities (Project
 Develop Statement of Work (Task       2/10/00 -          Manager/Trust Managers)
 Order) and provide to contractor      3/13/00
 (National Business Center-NBC                            Examine contractor and                    6/1/01 - 2/1/02
 Acquisition Service/Trust                                bureau/office FY 2003 budget
 Managers/Office of Personnel                             recommendations for submission to
 Policy)                                                  OMB, OST/Departmental Budget
                                                          Office, refine recommendations
 Award Contract (Task Order            3/20/00            based on feedback from OST and
 Modification) (NBC Acquisition                           OMB (Project Manager/Trust
 Services)                                                Managers)

 Designate Workforce Planning          3/20/00            Implement transition plan based on        10/1/01 - Tasks
 Project Manager and Bureau/Office                        appropriations obtained from              will be
 Planning Team Members (Office of                         Congress for FY 2002, monitor             repeated as
 Personnel Policy/Trust Managers)                         effectiveness and success; repeat         needed each
                                                          cycle, if necessary (Trust                year
                                                          Managers/Servicing HR Office)
 Provide Bureaus/Office Workforce      3/20/00
 planning instructions (Project
 Manager/Office of Personnel
 Policy/NBC Acquisition Services)
                                                         Organizations which have conducted
 Bureaus/Office Kick-off Meetings      3/24/00           substantial formal workforce planning
 with contractor (Project
 Manager/Team Members/Trust                              activities will complete, validate and/or
            For FY 2002 Planning Activities              update their plans and actions. These
 Strategic Planning: Validate and/or   3/15/00 -
                                                         organizations are MMS and OST. By
 update existing workforce plans
 and/or initiate process for
                                       6/1/00            3/20/00, they will have planning instructions
 developing detailed workforce plans                     to independently review the workforce
 (Project Manager/Contractor/Trust
 Managers)                                               planning actions that they have already
 Scan Environment: Analyze
 workforce competencies (Project
                                       3/15/00 -
                                                         undertaken, as well as their existing action
 Manager/Contractor/Trust                                plans, to ensure valid workforce
 Current/Future State: Initial         5/1/00 - 6/1/00
                                                         requirements have been or will be identified.
 projection of workforce needs for
 FY 2002 budget based upon analysis
                                                         OST may also use contractor assistance to
 of present workforce, and develop                       aid in projecting its workforce needs for
 budget recommendations (Project
 Manager/Contractor/Trust                                several major tasks. By 6/1/00, MMS and
 Examine contractor and                6/1/00 - 2/1/01
                                                         OST will complete their validation and
 bureau/office FY 2002 budget                            provide their projection of workforce needs
 recommendations for submission to
 OMB, OST/Departmental Budget                            for the FY 2002 budget cycle.
 Office, refine recommendations
 based on feedback from OST and
 OMB (Project Manager/Trust
                                                         By 3/24/00, the other trust management
            For FY 2003 Planning Activities              organizations (BIA, OHA, BLM and, where
                                                         needed, OST) will initiate, with contractor

assistance, a detailed process to provide a       bureau and office during March, 2000. At
framework for making staffing and training        this time, organizations will define the roles
decisions and ensuring the right number of        of human resources, strategic planning,
people with the right competencies are in the     budget, program and line managers, and
right jobs at the right time. This will include   information technology staff in the planning
demographic analysis of occupations, grade        effort.
levels, skills, experience, age, retirement
eligibility, turnover rates, etc. Based on this   Congress will appropriate the FY 2001
analysis, by 6/1/00, the organizations will       budget in the fall of 2000, in the midst of the
project their FY 2002 workforce needs and         workforce planning cycles for the FY 2002
develop their budget recommendations. At          and FY 2003 budget. Current plans include
this time, for input to the FY 2003 budget        hiring during FY 2000 and FY 2001 in
process, the organizations will continue to       accordance with the Congressionally-enacted
examine their longer-term work                    FY 2000 budget and the President’      s
requirements, forecast recurrent skills and       proposed budget for FY 2001, consistent
competencies, and conduct in-depth                with existing workforce plans. Although
comparative analysis of current workforce         hiring itself is not part of the planning
resources versus future requirements. By          process, FY 2001 hiring activities are
5/1/01, organizations will complete their         indicated in the table. The Project Manager
plans for making the transition to the future     will oversee the preparation of a brief
workforce and develop FY2003 budget               summary report at the end of each action,
recommendations.                                  and a report to be issued each June which
                                                  will include staffing recommendations to be
Any requirements for training staff identified                                      s
                                                  factored into the Department’ budget
through this workforce planning process will      development process.
be coordinated with and accomplished under
the training subproject outlined in the High      As funds are appropriated by Congress and
Level Implementation Plan (HLIP).                 thereby made available to bureaus and
                                                  offices, each organization will hire personnel
A Statement of Work (SOW) is being                in accordance with the Department’    s
prepared to initiate contractor assistance.       established policies and procedures, Office of
The (SOW) will include task orders for the        Personnel Management regulations, and
Trust Assets and Accounting Management            statutory requirements.
System (TAAMS), OHA Probate, BIA’          s
trust and resource management programs,
OST’ collection and funds management              RELATIONSHIP TO CURRENT
functions, and BLM Minerals Realty and            STAFFING PLANS
Resources Protection staff. The task orders
will emphasize and call for workload and          The workforce planning effort specified in
staffing analyses that will ensure staffing and   this report will be taking place at a time
training needs for these functions are            when there are significant initiatives in
systematically identified for inclusion in        midcourse or being launched which, among
future budget projections. Instructions on        other things, include major staffing increases.
workforce planning actions and plan
preparation will also be provided to each         In light of known deficiencies and anticipated

changes in trust management related                estimates of staffing (in terms of full-time
activities, the President’ FY 2001 budget          employees, FTEs) per Congressional
request includes significant increases in          appropriations in FY 1999 and FY 2000, and
staffing. It is expected that over the next year                 s
                                                   the President’ FY 2001 budget request.
and a half, over 400 employees will be hired
to staff trust fund improvement initiatives.                                                                   FY 2001
                                                                         FY 1999            FY 2000
                                                                         Enacted            Enacted
Major staffing increases already planned for                                                                   Request
selected trust functions during this year and                                FTE                FTE                FTE
next include:
                                                     BIA                1848               1857               2206

! The Office of Hearings and Appeals has             OST                312                346                366
    current plans to hire 4 permanent                MMS*               128                128                128
    Administrative Law Judges in FY 2000,
    hire 10 temporary Indian probate judges          OHA                34                 50                 87
    for two years (starting in FY 2000), and         BLM#               39                 39                 39
    hire 12 attorneys, and 20 temporary and
                                                     TOTAL              2361               2420               2826
    12 permanent paralegals and legal clerks
    in support of the judges. Funding for                                      s
                                                   * Assuming that 21% of RMP’ activities are spent on Indian Trust
                                                   management and Indian Royalty matters, in general.
    these positions will come out of the OST
                                                   # FTE figures are approximate. BLM does not segregate its trust management
    budget.                                        FTEs into Indian and non-Indian components.

! BIA’ budget for FY 2001 currently
      s                                            The staffing levels that will be implemented
    pending before Congress requests 170           in FY 2000 are based on the Department’    s
    new positions for real estate services, 57     High Level Implementation Plan. The
    new positions for land title and records       workforce planning effort that will be
    work, 28 new positions for real estate         conducted over the next few months, while
    appraisals, 40 new positions for probate,      focused on FY 2002, will help inform the
    and 54 new positions for other trust           staff allocations for FY 2001.
    service functions. In order to expedite
    the hiring process and speed up
    improvements in trust management,
    some of the new positions will be filled in
    FY 2000 with funding from the OST.
    Also, some of these positions could be
    contracted out to or staffed by Tribes
    under P.L. 93-638.

! The Special Trustee’ budget for FY
    2001 requests 20 new positions to handle
    increased operational activities in the
    Office of Trust Funds Management and
    for other trust improvement initiatives.

The table below is a summary of initial

APPENDIX                                         Project
                                                 Bureau of Indian Affairs

PRELIMINARY REVIEW PROCESS                       Deborah Maddox, Director
                                                 Office of Management and Administration
Staff from the Office of Personnel Policy        Bureau of Indian Affairs
conducted preliminary organizational and
staffing reviews with Interior’ primary trust
                                s                Thomas Thompson
management organizations to ascertain the        Principal Deputy Special Trustee
status of workforce planning in each             Office of the Special Trustee
organization, to collect baseline
organizational and staffing information, and     Terry Virden, Director
to begin assessing the need for overarching      Office of Trust Responsibilities
or bureau-specific human resource policies       Bureau of Indian Affairs
and planning procedures related to trust
management. PPM staff collected and              PRELIMINARY REVIEW
reviewed information and materials from,         METHODOLOGY
and conducted interviews with the
responsible officials in each of the primary     PPM staff focused fact-gathering and review
trust management organizations.                  in three areas:

A list of references reviewed in preparing       C Organization, Functions and Staffing
this plan is provided in Table 1 at the end of
this report.                                     C Strategic Workforce Planning Actions

The following officials in the trust             C Policy and Procedural Requirements
management organizations were interviewed
and provided materials for the review:           Organization, Functions and Staffing.
                                                 The focus of this area of review was each
Robert Anderson, Deputy Assistant Director                      s
                                                 organization’ defined functions and
Minerals, Realty and Resources Protection        responsibilities, their accompanying structure
Bureau of Land Management                        and sub-elements as well as their assigned
                                                 staff and the skill mix. Collection and
Robert Baum, Director                            documentation of this current environmental
Office of Hearings and Appeals                   and position information fulfilled a key
                                                 workforce planning process requirement and
Lucy Querques Dennett, Associate Director        provided baseline information for use in
Royalty Management Program                       future phases of the process.
Minerals Management Service
                                                 Strategic Workforce Planning Actions.
                                                 This area of review sought information
Dale Fazio, Chief of Staff
                                                 about the organization’ efforts to relate
Royalty Management Program
                                                 workforce needs to the fulfillment of the
Minerals Management Service
                                                 organization’ strategic plan for trust
                                                 management business. Workload and
Nancy Jemison, Director
                                                 workforce analyses, strategic assessments
Office of Trust Management Improvement
and plans were reviewed to ascertain              Minerals Management Service, Royalty
whether or not workforce planning was             Management Program (RMP) has, over
being done in concert with strategic direction    the last several years, conducted a thorough
to effectively identify staffing and training     evaluation of its existing operations and
requirements necessary to accomplish              business processes. This effort defined a
objectives related to trust management and        strategic direction for the future and
improvement.                                      established an agenda for changing RMP’   s
                                                  work place environment, business processes,
Policy and Procedural Requirements. In            and information technology (IT).
this area PPM staff focused on the need for
any overarching and cross-functional policies     The RMP is now making fundamental
affecting human resources in the trust            changes -- or “reengineering” – in order to
management functions. They also sought            implement its vision of the future. Toward
information about program and                     this end, RMP developed and issued
bureau/office-specific policies or procedures,    Reengineering Transition Strategy which
established or required, that may impact an       contains strategies and implementation steps
organization’ ability to properly organize        to help successfully manage RMP’    s
work and supply resources to accomplish                                 s
                                                  transition from today’ organization and
trust management responsibilities.                processes to those of the future.

PRELIMINARY REVIEW FINDINGS                       Based on feedback from a previous study,
                                                  Change Readiness Assessment of the
The reviews of Interior’ primary trust            Workforce, the transition strategies focus a
management organizations revealed that                                             s
                                                  great deal of attention on RMP’ human
some of the organizations have accomplished       resource issues.
substantial workforce planning, produced
effective “staffing plans,” and/or have begun     With regard to organizational structure,
various implementation actions. In other          staffing and succession planning, RMP’    s
cases some workforce planning activities          transition strategy includes comprehensive
have begun or been undertaken in the past in      action elements and time lines for ensuring
various parts of the organizations to address     the new organizational structure supports
organizational structure, staffing and training   business processes; an initial staffing plan to
issues related to trust management business       make the transition from the existing
functions, but no comprehensive planning          organizational structure to the new
has been conducted.                               organizational structure; and a mid-to long-
                                                  term succession planning strategy to guide
The review also indicated that, in general,       future RMP hiring and advancement
there is no need for workforce policies           decisions, and to provide the necessary
outside the scope of the existing authorities     experience and needed skills sets for the next
and policies prescribed by rules or law,          decade. Additionally, transitional strategies
Office of Personnel Management (OPM)              for training, development and organizational
regulation, or Departmental policy.               learning have been well documented in
However, BIA will have to issue regulations       action elements and time lines.
before any attorney decision-makers can
formally assume their tasks.                      The above activities provide a solid
                                                  foundation for estimating staffing
requirements.                                    including quarterly staffing model updating
                                                 to ensure required staffing levels are
The Office of Special Trustee (OST)              maintained appropriately and a formal
initiated and led a number of trust              training initiative.
management improvement efforts that have
resulted in strategic actions affecting          Earlier, in April 1997, MACRO
infrastructure, alignment of work and skills,    International, Inc., completed a
and training of the workforce. With the          comprehensive Needs Analysis Project for
realignment of accounting and data entry         OST that included as a major component a
functions from Field Operations to the Office    section on organizational staffing, training
of Trust Funds Management, OST                   and development. The related
completed a Realignment Study to                 recommendations from this project have
accomplish two major tasks: (1) to identify      provided the fundamental training approach
customer service improvement approaches;         being pursued in the Trust Management
and (2) identify cost savings strategies         Improvement Project to ensure staff receive
throughout Field Operations.                     consistent function/task training and system
Recommendations from this study resulted in      implementation training needed to enhance
OST initiatives to strengthen resources,         job performance and interorganizational
including staff, training, equipment, travel     effectiveness.
and materials.
                                                 The above activities cover a major portion,
After replacement of the legacy accounting                           s
                                                 but not all, of OST’ workforce. OST
software system with a new Trust Fund            intends to use a contractor to evaluate the
Accounting System (TFAS) in September            collection and funds management functions
1998, the Office of Trust Fund Management        under TFAS.
(through MACRO International, Inc.),
completed a Centralization Re-analysis           Office of Hearings and Appeals (OHA), in
Study in October 1999, to address the            conjunction with BIA, has similarly analyzed
workload increase experienced by the staff of    and reengineered functions and processes for
the Division of Trust Funds Accounts. This       its probate work through two major Indian
study analyzed changes attributed to the new     Probate Reinvention Labs, and has begun
TFAS system versus those independent of          implementing staffing changes. The Indian
system changes, areas having the heavier         Probate Reinvention Lab (IPRL), Phase II,
workloads, changes to activities or functions,   was formed and tasked with evaluating the
current staffing levels, new hire requirements   OHA Indian Probate process to ensure
and training. This included a                    timely preparation of cases, adjudication of
workload/workforce analysis to collect data      ownership, and redistribution of trust
to reflect findings in volume change;            property, so heirs promptly receive trust
transaction makeup change; skill change;         assets and income to which they are legally
organization structure change; spike change      entitled.
related to new program deployment; and
possible actions to address changes in           In Phase II, with the focus on streamlining
process, staffing and training.                  the Indian probate process in OHA, a team
                                                 reviewed reports from previous studies,
Initiatives were also begun to improve the       conducted site visits, interviewed employees,
organization’ efficiency and effectiveness,      analyzed the existing OHA probate process,
designed elements of a new probate process,    been completed for the minerals
and developed a number of                      responsibility where there is active mineral
recommendations having human resources         development on Indian lands and for BLM
implications.                                  State Offices with responsibility for cadastral
                                               surveys of Indian lands. The second phase
The IPRL found that a staff reduction within   of the review involves developing and
the OHA from a total of 20 Administrative      identifying performance standards for
Law Judges (ALJs) in 1986 to 9 ALJs in                             s
                                               carrying out BLM’ trust activities and
1996, together with increasing case loads in   functions. The review will address all
both Indian probate and non-probate cases,                       s
                                               aspects of BLM’ trust program
had severely impacted the timeliness of        responsibility. In developing the standards,
decision processing. The IPRL                  BLM will coordinate with other agencies
recommendations include establishing a         such as MMS, BIA and other entities within
nationwide case-tracking system; changing      the Department, including the Office of
the measure of service to the customer to      American Indian Trust and Office of the
timeliness; increasing the number of           Solicitor. BLM will also consult with
permanent ALJs to 14, including the Chief      minerals tribes and tribal representatives.
ALJ; realigning regional boundaries and        Corrective action plans developed to address
reopening OHA hearings offices in Billings,    any identified deficiencies will also address
Bismarck, Rapid City, and Phoenix; holding     organizational and staffing requirements.
hearings at least twice yearly at most BIA
agency offices and other regular hearing                                  s
                                               Detailed analysis of BLM’ trust-related
sites; establishing a dedicated budget;        function should build on the above-
establishing Indian Probate Backlog            mentioned reviews.
Elimination Teams consisting of ALJs and
support staff; and establishing BIA Attorney   Bureau of Indian Affairs (BIA). Over the
Decision-Maker positions. A substantial        years, BIA has undertaken various
number of these recommendations were           workforce analysis efforts. Among these is
adopted by Departmental managers and are       the Forestry Program Funding and Position
in various stages of implementation and will   Analysis, published in April 1997. This is
be factored in during strategic workforce      the sixth report of organizational capability
planning efforts.                              accomplished by the Division of Forestry
                                               since 1984. The analysis was designed to
The above efforts cover a major portion, but   provide the means to perform, on a recurring
not all, of OHA’ trust-related business. The   basis, in-depth analyses of the overall Indian
above work will be further reviewed and        Forestry Program, and specific components
staffing plans for other trust-related work    thereof, in order to determine the present
will be evaluated in the workforce planning    scope and workload. The report assesses the
process.                                       availability and utilization of financial and
                                               personnel resources involved in the forestry
Bureau of Lands Management (BLM) is            mission. It also projects the resources
in the process of conducting a review of its   necessary to provide forest management
trust management business operations. The      services to Indian forest owners.
first phase of the review involves
identification and delineation of trust        An earlier position and funding analysis of
responsibilities in BLM offices. This has      agriculture/range, fish and wildlife
management programs is documented in               agencies. However, such benchmarking is
Position and Land Analysis Survey, Division        problematic in that many of the functions
of Water and Land Resources. This analysis         undertaken by BIA in this program have no
provided consolidated data for the Bureau to       counterparts in other private or public sector
utilize in management improvements related         entities.
to the number and distribution of its
resources in the natural resources disciplines.    Finally, the probate subproject under the
The recommendations in the report address          HLIP includes a two-phase staff assessment.
the need to realign the staff ratios of the        By May 2000, a contractor will be retained
professional-technical components in               to conduct a caseload assessment and project
agriculture and range management, as well as       the range of positions needed at various BIA
to increase the number of professionals in         field offices. The contractor will complete
soil and range conservation, for the Bureau        the permanent field staff assessment by
to adequately perform its trust role in            March 2001.
resource conservation.
                                                   The planning effort outlined in the main
As noted previously, BIA participated in the       document will draw on the above-mentioned
IRPL, and plans to make staff adjustments          efforts in its development of a detailed
based on the lessons learned and                                     s
                                                   analysis of BIA’ workforce needs as they
recommendations from those probate                 relate to trust management functions.
process studies.

A recent Study of Management and
Administration: The Bureau of Indian
Affairs, by the National Academy of Public
Administration, primarily addressed BIA’       s
shortage of administrative services staff
including, importantly, for trust-related
functions, the information resource
management component of the BIA
organization and its ability to fulfill trust
management functions. This effort was based
on BIA’ self-assessment of staff shortages.
Recommendations from this study are
currently being acted upon and will be
considered in the comprehensive workforce
planning process. Additionally, an appendix
of the report commented briefly on BIA’       s
staffing for trust management functions and
noted that BIA had indicated that they
lacked sufficient staff.

Also, in July 1999, BIA issued the Report on
Tribal Priority Allocations which attempted,
among other things, to benchmark BIA’      s
staffing against functions/staffing at other
Reference Documents

                                        Table 1: Reference Documents

      Office of Hearings and Appeals, Indian Probate Reinvention Lab Phase II - Working Draft, December
      1999, IPRL Phase II Team

      Office of the Special Trustee for American Indians, Centralization Re-Analysis Study for The Office of
      Trust Funds Management, October 1999, MACRO International, Inc.

      A Study of Management and Administration: The Bureau of Indian Affairs, August 1999, National
      Academy of Public Administration,

      Minerals Management Service, Royalty Management Program: Reengineering Transition Survey,
      August 1999, Gene Rouleau & Associates, Inc. and the Transition Planning Team, Royalty
      Management Program

      Minerals Management Service, Knowledge Management Concept of Operations - Final, August 1999,
      Booz-Allen & Hamilton

      Bureau of Indian Affairs, Report on Tribal Priority Allocations, July 1999

      Office of Hearings and Appeals, Indian Probate Reinvention Lab - Final Report, July 1999, IPRL Phase
      I Team

      Office of the Special Trustee for American Indians, Training Plan Approach for the High Level
      Implementation Plan, April 1999, MACRO International, Inc.

      Minerals Management Service, Reengineering Royalty Management Program Business Processes and
      Support Systems: Road Map to the 21st Century, November 1998, Royalty Management Program

      Office of Surface Mining, Today’ Coal Mine Reclamation, Fiscal Year 1998, Office of
      Communications, Office of Surface Mining

      Department of the Interior, High Level Implementation Plan (HLIP), July 1998, Trust Management
      Improvement Project

      Office of Trust Funds Management, Realignment Study - Final Report, June 1998, MACRO
      International, Inc.

      Minerals Management Service, Reengineering Business Processes and Support Systems for the 21st
      Century - Preliminary Design Concepts of the Royalty Management Program (RMP) Reengineering
      Team, March 1998, Royalty Management Program

      Office of the Special Trustee for American Indians, Needs Analysis Project - Final Report, April 1997,
      MACRO International, Inc., Larson Slade Associates, LLC and Arrowhead Technologies, Inc.

      Office of the Special Trustee for American Indians, Comprehensive Budget Plan (Cost Analysis Survey),
      April 1997, Office of Trust Funds Management

      Bureau of Indian Affairs, Indian Water Rights: An Analysis of Current and Pending Indian Water
      Rights Settlements, 1997, The Confederated Tribes of the Chehalis Reservation, Office of Trust

      Intertribal Timber Council, An Assessment of Indian Forests and Forest Management in the United
      States, November 1993, the Indian Forest Management Assessment Team

      Bureau of Land Management, Internal Control Review of the Indian Diligence Program Component 61-
      5 of the Bureau Management Control Plan, March 1993

      House of Representatives Report 102-499, Misplaced Trust: The Bureau of Indian Affairs
      Mismanagement of the Indian Trust Fund, April 1992, 102nd Congress, 2d Session