The Department of Energy (DOE) relies heavily on contracts, with approximately 80 percent of its annual expenditures allocated to contracts, making it a significant civilian contracting agency within the federal government. A large portion of DOE staff across various roles are involved in the acquisition process, as highlighted by officials from the Office of Science, the Office of Environmental Management (EM), and the National Nuclear Security Administration (NNSA) during a Government Accountability Office (GAO) review. While some of these personnel, particularly contracting officers, possess federal or DOE acquisition certifications, DOE’s Acquisition Career Management Program primarily mandates acquisition-related training for only these certified individuals, who constitute about 15 percent of the agency’s total workforce.
Notably, DOE generally does not enforce acquisition-related training for non-certified staff, despite their potentially crucial roles in the DOE acquisition process. Guidance from the Office of Federal Procurement Policy advises agencies to consider the functions of all staff members, including roles such as requirements development performed by technical experts, and to incorporate significant acquisition-related positions into their acquisition training programs. By re-evaluating the inclusion criteria for its Acquisition Career Management Program and establishing training mandates for non-certified staff who meet these criteria, DOE could significantly enhance its capacity to effectively oversee its extensive contracting activities.
Furthermore, the GAO review assessed the implementation of leading practices in strategic planning for the acquisition workforce within the Office of Science, EM, and NNSA. These offices, collectively representing over 75 percent of DOE’s contract obligations in fiscal year 2019, were found to have implemented only two of the five leading practices fully, with partial implementation of the remaining three. For instance, while these offices have taken initial steps to identify workforce needs, they have not comprehensively identified skill and competency gaps within their acquisition workforces. This includes failing to pinpoint the specific types and numbers of positions necessary to bridge these gaps, a crucial element recommended by leading workforce planning practices.
Adding to these concerns, senior officials within DOE and NNSA have expressed apprehension about insufficient staffing levels and a lack of appropriately skilled personnel within the acquisition workforce to adequately manage contracts. Although NNSA has undertaken limited assessments of skill and competency gaps for certain positions in its acquisition workforce, the other offices examined by GAO have not conducted similar analyses. A more thorough and complete understanding of these skill and competency deficits across the DOE acquisition workforce would provide the agency with improved data to inform budget development and strategic initiatives. This enhanced information would be instrumental in building a workforce of the right size and possessing the necessary skills to effectively address DOE’s persistent challenges in contract management.
Why GAO Conducted This Review
The GAO initiated this study in response to concerns regarding DOE’s federal acquisition workforce, which is critical for managing risks throughout the complex contracting process. DOE’s contract and project management has been previously designated by GAO as a high-risk area due to a history of inadequate contract oversight.
This review was mandated by Senate Report No. 116-48, accompanying the National Defense Authorization Act for Fiscal Year 2020, which included a provision for GAO to investigate issues impacting DOE’s acquisition workforce. The resulting GAO report specifically examines: (1) the roles encompassed within DOE’s acquisition workforce and the extent of acquisition-related training received by this workforce; and (2) the degree to which DOE has adopted leading practices for effective strategic planning concerning its acquisition workforce.
The scope of GAO’s review focused on the Office of Science, EM, and NNSA, which together account for a significant majority of DOE’s contract obligations. GAO’s methodology involved a comprehensive review of relevant regulations, policies, and workforce planning documents. Interviews were conducted with DOE officials, and the gathered information was benchmarked against established leading practices in workforce planning to assess DOE’s current standing and identify areas for improvement within its Acquisition Career Management Program.
