PART I
EMPLOYMENT OF MINORITIES, WOMEN, AND PEOPLE WITH DISABILITIES

A. BACKGROUND AND STATUTORY AUTHORITY

The landmark civil rights legislation outlawing discrimination based on race, color, religion, gender and national origin remains the Civil Rights Act of 1964. Since its passage, a number of significant statutes and Executive Orders have established the legal foundation for federal agencies in the areas of equal employment opportunity (EEO) and affirmative employment. Because of these laws and regulations, federal agencies have an affirmative obligation to ensure non-discrimination as a condition of compliance with Section 717 of Title VII of the Civil Rights Act of 1964 (Title VII) and Section 501 of the Rehabilitation Act of 1973 (Rehabilitation Act) relating to equal employment opportunity in the federal government.

Title VII prohibits discrimination with regard to any personnel action, or term, condition, or privilege of employment, based upon race, color, sex, national origin, or religion. Section 717 of Title VII provides:

(a) All personnel actions affecting employees or applicants for employment . . . in the federal government . . . shall be made free from any discrimination based on race, color, religion, sex, or national origin.

(b) Except as otherwise provided in this subsection, the Equal Employment Opportunity Commission shall have authority to enforce the provisions of subsection (a).

Title VII also requires the EEOC to oversee the affirmative program of EEO and to be responsible for the review and evaluation of the operation of all agency equal opportunity programs, including progress reports from each such department or agency.

The Rehabilitation Act prohibits discrimination against qualified individuals with disabilities on the basis of their disability. It also requires affirmative employment plans for the hiring, placement, and advancement of individuals with disabilities within the federal government. The standards of the Americans with Disabilities Act of 1990 (ADA), which also prohibits discrimination against individuals with disabilities, apply to the federal government through the Rehabilitation Act.

In addition to the laws and regulations prohibiting discrimination on the basis of race, color, sex, national origin, religion, age, disability, and retaliation (for engaging in protected EEO activity), the federal government acts pro-actively in the area of affirmative employment. Federal agencies submit annual reports to the EEOC regarding their Affirmative Employment Programs (AEP). An AEP addresses efforts and accomplishments in recruitment, promotions, training, hiring, and other advancement opportunities.

Although Title VII grants the EEOC oversight authority, many executive branch agencies - including the Office of Personnel Management (OPM), Merit Systems Protection Board (MSPB), and the Departments of Justice and Labor - have shared responsibility for establishing, overseeing, and enforcing the federal civil rights laws and affirmative employment programs.

Federal agencies report to the OPM the results of their Federal Equal Opportunity Recruitment Program (FEORP) activities. FEORP was established under the Civil Service Reform Act of 1978. It requires agencies to maintain equal opportunity recruitment programs.

B. SCOPE AND METHOD

The EEOC is issuing this report as part of its responsibility for the review and evaluation of the operation of all agency EEO programs. This report is based on the submissions of 111 agencies and covers most of the federal work force.

More specifically, the current federal work force data⁽¹⁾ in this section of the report come from the annual reports filed by federal agencies and the OPM's Central Personnel Data File (CPDF).⁽²⁾ The Civilian Labor Force (CLF) ⁽³⁾ for 1990 were derived from the 1990 census. The EEOC used the CLF data to produce Census Availability Data (CAD). The EEOC provided federal agencies with the availability data to be used for comparing the federal agency participation rates with the relevant labor force.

The EEOC used the CAD to evaluate federal agencies' progress in ensuring equal employment opportunities. The CAD was also used in reviewing the agencies' annual accomplishment reports, using the current five standard PATCO categories.⁽⁴⁾

This part of the report analyzes total work force data generated by combining CPDF information and work force information from non-CPDF agencies with 500 or more employees.

C. TOTAL WORK FORCE SUMMARY

1. GENERAL TREND

• Over the last ten years (FY 1993 - FY 2002), the size of the federal work force decreased from 2,643,391 in FY 1993 to 2,459,505 in FY 2002. However, between FY 2001 and FY 2002 the size of the federal work force increased from 2,445,335 in FY 2001 to 2,459,505 in FY 2002.

Participation Rate of People with Targeted Disabilities

Percentage Change from FY 1993 to FY 2002

Figure I-B

2. PARTICIPATION RATES

• While the number of women in the federal work force increased in FY 2002, the percentage did not change significantly. The participation rate of women in the federal work force (42.43%) continued to be below the 1990 CLF (45.70%).
• The participation rate for people with disabilities, especially people with targeted disabilities,⁽⁵⁾ remains well below their estimated availability. People with targeted disabilities have never reached 1.5% of the federal work force, which would be only one-quarter of the 5.95% estimated availability for such individuals. People with targeted disabilities would need to increase by 601% (129,147) in order to match the availability estimate of 5.95%. In FY 2002, the percentage of people with targeted disabilities in the federal work force decreased for the fifth consecutive year, and by 20.49% when compared with the relevant participation rate for FY 1993.

3. DISTRIBUTION OF WORKERS AMONG FEDERAL AGENCIES

Work force participation rates vary considerably by agency. The data show wide differences in the participation rates of certain groups among executive departments and independent agencies with 500 or more employees.

• The Department of Justice (DOJ) is the largest employer of Hispanics. DOJ's 13,315 Hispanic employees represent 14.19% of the permanent DOJ work force.
• The Department of Veterans Affairs (VA) is the largest employer of Blacks. The 48,689 Blacks in the VA represent 24.21% of the permanent VA work force. The VA employs 115,724 women, which is 57.55% of the VA's permanent work force.

D. GRADE AND PAY

SENIOR PAY LEVEL

The Civil Service Reform Act of 1978 established the Senior Executive Service (SES) as a separate personnel system covering a majority of the top managerial, supervisory, and policy-making positions in the Executive Branch of government. The Senior Pay Level (SPL) represents less than one percent of the total federal white collar work force. SPL positions include the SES, Executive Service, Senior Foreign Service, and other employees earning salaries above grade 15 of the General Schedule.

• At the end of FY 2002, of the 15,224 SPL positions in the federal government, 13.45% were occupied by Blacks, Asians/Pacific Islanders, Hispanics, and American Indians/Alaskan Natives (up from 13.11% in FY 1993).
• Women occupied 25.06% of SPL positions (up from 13.40% in FY 1993).
• In the "feeder grades" to SPL positions, GS grades 14 and 15, minorities comprised 18.07% in FY 2002.
• The SPL participation rates for women, Blacks, Asians/Pacific Islanders, Hispanics and American Indians/Alaskan Natives continued to be below their expected availability based on the relevant labor force figures in every category.

a. Race/Ethnicity

• Whites - The SPL participation rate for Whites was 86.54% in FY 2002.
• Blacks - The SPL participation rate for Blacks remained virtually unchanged from FY 2001, and was 7.02% in FY 2002. Over the last ten years, the SPL participation rate for Blacks increased from 4.92% to 7.02%.
• Asians/Pacific Islanders - The SPL participation rate for Asians/Pacific Islanders remained unchanged from FY 2001, at 2.31% in FY 2002. Over the ten-year period, the SPL rate for Asians/Pacific Islanders increased from 1.16% to 2.31%.
• American Indians/Alaskan Natives - The SPL participation rate for American Indians/Alaskan Natives remained virtually unchanged from FY 2001, and was 0.81% in FY 2002. Over the ten-year period, the SPL rate for American Indians/Alaskan Natives remained less than one percent.
• Hispanics - The SPL participation rate for Hispanics increased from 3.03% in FY 2001 to 3.31% in FY 2002. Over the ten-year period, the SPL rate for Hispanics increased from 1.85% to 3.31%.

b. Gender

• The SPL participation rate for women increased from 24.27% in FY 2001 to 25.06% in FY 2002. Over the ten-year period, the SPL rate for women increased from 13.40% to 25.06%.
• Participation of men at the SPL decreased from 75.73% in FY 2001 to 74.94% in FY 2002. Over the ten-year period, the SPL rate for men decreased from 86.60% to 74.94%.

c. People with Disabilities

• The SPL participation rate of people with disabilities was 4.05%, while the participation rate of people with targeted disabilities was less than one-half of one percent. (The EEOC does not have ten-year SPL data available for people with disabilities.)

2. WHITE COLLAR PAY GRADES

• The average grade level for the total white collar work force increased slightly during FY 2002. The government wide average grade level for white collar positions was 10.04. Of white collar employees, 28.77% were in grades 1-8; 37.45% were in grades 9-12; and 23.23% were in grades 13-15. Except for grades 1-8, these ratios were essentially unchanged from FY 2001.

• Each of the federal white collar occupational series reflects a specialized line of work with specific classifications of skills and knowledge.  White collar employees in the CPDF increased from 1,416,205 in FY 2001 to 1,460,793 in FY 2002. Of the total white collar positions, 26.60% were in the Professional category; 38.30% were in the Administrative category; 22.89% were in the Technical category; 8.65% were in the Clerical category; and 3.56% were in the Other category.
• The white collar participation rate for Blacks, Hispanics, Asians/Pacific Islanders, and American Indians/Alaskan Natives increased slightly from 29.83% in FY 2001 to 30.24% in FY 2002.  Minorities comprised 18.18% of the 1990 white collar CLF. Minority professional employees comprised 22.52% of the professional work force. The participation rates of Blacks, Hispanics, Asians/Pacific Islanders, and American Indians/Alaskan Natives at the higher white collar grade levels remained essentially unchanged from FY 2001.

a. Race/Ethnicity

• Whites - The average pay grade for Whites was 10.44. The pay grade averages for Whites remained between one-half of a pay grade and one and one-half of a pay grade higher than the averages for minorities in each occupational category (except for Clerical, where the average pay grade of Blacks is slightly higher than the average for Whites).
• Blacks - The participation rate for Blacks was 17.07% of all white collar jobs in FY 2002, virtually unchanged from FY 2001. Blacks comprised 8.75% of the white collar 1990 CLF. The participation rates for Blacks increased in all PATCO categories during FY 2002. The average pay grade for Blacks is 8.90 (1.54 grades lower than the average pay grade for Whites). Blacks continue to be concentrated in the lower grade levels (i.e., 43.78% were in grade levels 1-8; 34.17% were in grade levels 9-12; and 14.20% were in grade levels 13-15).
• Asians/Pacific Islanders - Asians/Pacific Islanders held 4.51% of all white collar federal jobs in FY 2002, a slight increase from 4.39% in FY 2001. Asians/Pacific Islanders comprised 3.12% of the white collar 1990 CLF.  The participation rates for Asians/Pacific Islanders increased in Administration and Technical categories during FY 2002. The average pay grade for Asians/Pacific Islanders was 10.17 (0.73 of a grade lower than the average pay grade for Whites). Asians/Pacific Islanders were concentrated in the middle grade levels (i.e., 26.08% were in grade levels 1-8; 37.53% were in grade levels 9-12; and 25.32% were in grade levels 13-15).
• American Indians/Alaskan Natives - American Indians/Alaskan Natives held 1.88% of all white collar federal jobs in FY 2002, a figure virtually unchanged from FY 2001. American Indians/Alaskan Natives comprised 0.51% of the white collar 1990 CLF.  The participation rates for American Indians/Alaskan Natives increased in all PATCO categories during FY 2002. The average pay grade for American Indians/Alaskan Natives was 8.47 (2.43 grades lower than the average pay grade for Whites). American Indians/Alaskan Natives were concentrated in the lower grade levels (i.e., 47.51% were in grade levels 1-8; 34.65% were in grade levels 9-12; and 12% were in grade levels 13-15).

Average Grade By Race/National Origin

FY 1993 - FY 2002

Figure 1-D

• Hispanics - Hispanics held 6.78% of all white collar federal jobs in FY 2002, an increase of less than one percent from FY 2001. Hispanics comprised 5.80% of the white collar 1990 CLF. The participation rates for Hispanics increased in all PATCO categories during FY 2002. Hispanics were still below the 1990 CLF. The number of Hispanic men would need to increase by over 10.80% (11,505) in order to match the 1990 CLF participation rate of 4.8% Hispanic men. The average pay grade for Hispanics is 9.29 (1.15 grades lower than the average pay grade for Whites). The percentage of Hispanics in the higher grade levels decreased slightly in FY 2002, and Hispanics were still concentrated in the lower and middle grade levels (i.e., 36.83% were in grades 1-8; 48.65% were in grade levels 9-12; and 14.40% were in grade levels 13-15).

b. Gender

• Women held 48.77% of all white collar federal jobs in FY 2002, a slight decrease from FY 2001. Women comprised 54.61% of the white collar 1990 CLF.
• Except for the Clerical and Other categories, the participation rates for women increased in all PATCO categories during FY 2002. However, there was a decrease from 15.69% to 14.45% for women in the Clerical category.
• Approximately 40% of women employed in the federal work force were in grades 5-8. The average white collar grade for women was 10.44 - nearly one-half of a grade below the government wide average grade level.
• The average grade level for men (10.90) was 0.46 grades higher than that for women.
• Men increased in number, but their participation rate remained unchanged in the white collar federal work force during FY 2002.

c. People with Disabilities

• The average white collar grade for people with disabilities was 9.18, about one grade below the government wide average grade level (10.11) for people with no disability. The average grade level for people with targeted disabilities was 8.12.

3. BLUE COLLAR EMPLOYMENT

• In FY 2002, blue collar jobs comprised 11.70% of the federal work force covered by the CPDF (a decrease of less than one percent from FY 2001).
• The percentage of blue collar jobs held by minorities increased slightly in FY 2002 to 34%.
• The percentage of blue collar jobs held by women remained virtually unchanged, but White men (61.20%) continued to be predominant. Women were only 9.62% of the blue collar occupational category, compared with the CLF participation rate of 14.10%.
• People with targeted disabilities only comprise 1.35% of the blue collar work force, but 14.16% of all people with targeted disabilities are in the blue collar job category.

1. Specific analyses by grade, white collar, and blue collar groupings exclude the Army and Air Force Exchange Service, the Tennessee Valley Authority, and the U.S. Postal Service. These agencies were included in some analyses of total federal employment.  References to blue collar employment refer to the Federal Wage Grade Systems.

2. CPDF is an automated file created by the OPM.  The file is based on personnel action information submitted directly to the OPM by federal agency appointing offices, and is updated monthly.  The Standard Form 50, "Notification of Personnel Action," is the basic source of input to the CPDF.  The CPDF does not include data for the Army and Air Force Exchange Service, Tennessee Valley Authority, or the U.S. Postal Service (these agencies make up approximately 30% of the federal work force). The Central Intelligence Agency, Defense Intelligence Agency, National Imagery and Mapping Agency, and National Security Agency are not included in the CPDF per statutory mandate.

3. The CLF includes all persons, 16 years of age or older, excluding those in the Armed Forces, who were employed or seeking employment. For example, white collar CLF data describes employees and persons seeking work and have been differentiated into five categories to match the current PATCO categories (see note 4, below). The PATCO CLF data were derived by the EEOC from the 1990 Census by matching each of the approximately 420 federal occupational series with the appropriate counterpart employment occupations in the Census occupation listing. The white collar CLF data excluded census categories of sales worker, craft workers, operatives, and laborers.

4. During the 1970s, the former Civil Service Commission (now the OPM) created and defined five employment categories - Professional, Administrative, Technical, Clerical, and Other (PATCO) - by which federal agencies could group occupational series for various purposes (e.g., coverage under the Fair Labor Standards Act). These categories, still used in many areas of federal personnel administration, are a key element in the CPDF. For more specific definitions of the PATCO categories, see Appendix I: Glossary/Definitions.

5. Nine categories of severe disabilities were targeted for emphasis in affirmative employment programs for people with disabilities.  These targeted disabilities and the applicable codes on Standard Form 256, Self-Identification of Reportable Handicap, are:  deafness (16,17), blindness (23,25), missing extremities (28,32-38), partial paralysis (64-68), complete paralysis (71-78), convulsive disorders (82), mental retardation (90), mental illness (91), and distortion of limbs and/or spine (92).  Standard Form 256 is a voluntary self-identification form developed by the OPM and used to identify and track the number of employees with disabilities and the types of disabilities that were represented in the federal government work force. Many employees elect not to complete this form.

This page was last modified on June 26, 2003.

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