1. Image of Public Service
A recent survey shows the need for succession planning,
formal training, and coaching to prepare the next generation
for increasingly complex responsibilities.
The Program
Manager’s View
T by Selena Rezvani and Stephen Pick
he federal program management community is a highly visible group that manages more
than $2.55 trillion dollars in annual budgets and oversees numerous programs critical to
its constituencies. Despite this group’s importance, the experiences and insights of pro-
gram managers have gone largely untapped and undefined.
Galvanized by the desire to close this gap in knowledge, the Council for Excellence
in Government (CEG) and U.S. Office of Management and Budget (OMB), in partner-
ship with Management Concepts and Robbins Gioia, launched a first-of-its-kind study
exploring the perceptions of federal program managers.A CEG-led committee—in place
since 2007—agreed to sponsor the survey with the goal of gaining knowledge to advance
the field of federal program management. Meeting over the course of a year, the com-
mittee designed a survey instrument, guided by OMB’s participation and buy-in through-
out the effort.
The survey represented an opportunity to gather baseline data on an important group
of federal leaders.The primary intention was to learn about program managers’ daily ex-
periences, including practices that support their work as well as areas of unmet need. Sur-
vey participants were asked about their program’s practices, professional development ex-
periences, and suggestions for best positioning the next generation of program managers.
Data were also collected regarding respondents’ personal demographics.
Approach
Management Concepts oversaw the development and administration of the online
survey, while OMB identified and invited participation of program managers. In Febru-
ary 2008, OMB requested the unincentivized involvement of 550 people, of which 123
responded, a total response rate of 22 percent.The survey sample was not randomly se-
lected, and like all surveys, responses may not fully represent the intended population—
in this case, program managers. Furthermore, results discussed here should be treated as
self-reported information rather than “fact.”
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2. The sixty-five-item survey was shows that women constitute 44 per- lowed by the U.S. Government Ac-
segmented into four main areas, which cent of the workforce. Majority trends countability Office (GAO).
we discuss individually: show a highly seasoned group:most sur- Frustration with the PART was ex-
T Clarity of responsibility and vey participants were 54 years of age or pressed in many survey comments.One
accountability older (51 percent), were eligible for re- participant noted, “Sustained change
T Program management skills and tirement within the next five years (55 takes time and the PART process does-
experience percent), and carried advanced de- n't come anywhere close to accommo-
T Organizational alignment and grees at the master’s or doctoral level (74 dating this reality.” Despite skepticism
support percent).Respondents did not represent concerning the PART’s effectiveness,sur-
T Execution and results. a diverse group, however, as 73 percent vey respondents considered independent
self-identified as Caucasian/White. evaluations and discussions with a man-
Results ager the most valuable methods for re-
Demographics Overarching Trends ceiving guidance on improving their pro-
The survey uncovered a highly ex- Clarity of Responsibility and Accountability gram’s performance.
perienced population of program man- The first survey section, covering
agers, most of whom manage large pro- clarity of responsibility and accountability, Program Management Skills and Experience
grams of more than $100 million (46 asked participants about their program’s The second survey section, con-
percent).Although www.expectmore.gov objectives, including how goals are cerning program management skills and
lays out seven categories of programs (di- communicated and measured,and who experience, examined the areas of pro-
rect federal,competitive grant,block/for- is involved in assessing the program man- fessional preparation, development, and
mula grant,regulatory,capital assets and agement activity. Program managers training. Program managers were asked
service acquisition, credit, and research were also asked about the most valuable about the value of training they received,
and development),most of the group sur- guidance they receive and what incen- certifications they may hold, and types
veyed manage competitive grant and di- tives are most motivating. of training they would recommend for
rect federal programs (75 percent). De- Forty-four percent of survey re- the next generation of program man-
spite their informal title of “program spondents indicated that there is either agers. Most (94 percent) do not hold
manager,” many survey respondents one reporting layer between them and certification from a professional organ-
specified they actually hold a“director”- the agency’s head or they report di- ization, such as the Defense Acquisition
level job title (40 percent),are at the GS- rectly to that person. Most agreed that Workforce Improvement Act (DAWIA)
15 grade level or higher (71 percent),and their individual performance goals Program Manager certification or Proj-
have worked in program management are clear and measurable and that ect Management Institute (PMI) Proj-
for the federal government for ten or they are held accountable for perfor- ect Management Professional (PMP)
more years (60 percent). mance.The overwhelming majority of certification.
Personal demographic data were respondents (84 percent) affirmed that Some (35 to 50 percent) noted
also collected, including gender, age, their agency has a formal program per- they have never received training in ar-
years until retirement,race/ethnicity,and formance assessment process and it is eas that appear critical to program
education level. Surprisingly, the gen- conducted through the Program As- management, including dealing with
der breakdown was nearly equal:51 per- sessment Rating Tool (PART), either the media, working with stakeholders
cent of respondents indicated they annually or quarterly. More than three- or Congress, requirements develop-
were male, and 46 percent indicated quarters noted that their program has ment, risk management, and budget
they were female.The survey response been evaluated by an outside organi- and financial management. For those
rate for females is slightly higher than zation, most often OMB/PART, fol- who did receive training, the most
the government-wide median, which valuable was training in leadership, pro-
gram management, budget and fi-
nancial management, and strategic
Selena Rezvani is the consulting lead for Management Concepts’ assessment practice.A specialist in organ-
izational change, Selena received her master’s degree in social work from NewYork University and is com-
planning. One respondent pointed
pleting her MBA at Johns Hopkins University. Stephen Pick is a human capital consultant for Manage- out,“I recommend Facilitative Lead-
ment Concepts. Formerly a human capital analyst and personnel psychologist at the U.S. Office of Personnel ership training … [because] we are re-
Management, Stephen has a PsyD from Rutgers University in organizational psychology.
THE PUBLIC MANAGER ! WINTER 2008–09 95

3. sponsible for more than we are given for chief human capital officers ployees (94 percent), stakeholders (88
actual authority to do.” (CHCOs).Among the C-level execu- percent), the public (80 percent), and
In their comments, many respon- tives about which they were asked, re- grantees (55 percent),and most consider
dents noted on-the-job experience, spondents reported they receive the their programs effective in accom-
strategic planning training, and the most support from CFOs and the plishing goals and achieving meaning-
“Leadership for a Democratic Society” least support from CHCOs. Further- ful results.This relatively positive find-
training conducted by the Federal more, program managers that receive ing complements recent results posted
Executive Institute as helpful devel- more C-level support correlated with on OMB’s www.expectmore.govWeb
opmental experiences. Similarly, when those who had larger budgets, a high- site, which show that 72 percent of fed-
asked,“What type(s) of training would er level of education, and a longer eral programs are performing (as op-
you recommend for your successor and tenure as a federal program manager. posed to “not performing”) on the ba-
why?” most respondents proposed Perhaps the more veteran a program sis of PART assessments.
training in the areas of leadership de- manager is, the more savvy he or she Although survey data assessing
velopment, project management, and is about attaining executive support. the difficulty of daily activities varied
performance management.These data Respondents affirmed that their greatly, those most often rated as ex-
reinforce a July 2007 Partnership for program’s strategic plan is shared with tremely difficult by respondents are de-
Public Service and GrantThornton re- employees, stakeholders, and the pub- veloping measures and assessing pro-
port specifying that managers need lic but that events tend to drive stake- gram results (18 percent), responding
more workforce management training, holder involvement.When asked how to special requests from OMB (16 per-
specifically in the areas of leadership customers are involved in perfor- cent), and preparing or negotiating
and performance management. mance evaluation, respondents speci- budget requests (14 percent). One
fied that that activity happens through respondent wrote,“I’m spending more
Organizational Alignment and Support “surveys” (56 percent) and is “measured time feeding measurement systems
The third survey section, which by program success/customer satis- than focusing on strategic decisions and
examined organizational alignment and faction” (53 percent) most often. investments that will produce future re-
support, asked respondents about per- (They could select more than one re- sults.” Another survey-taker shared,
formance goals, evaluation efforts, and sponse for this question.) “Any free time has been taken up with
support program managers receive from PART, GPRA,ABC. ...The never end-
executives and strategic planning activ- Execution and Results ing requests from DC for data, infor-
ities. The majority of respondents con- The last survey section, dealing mation, etc., has resulted in staff often
firmed that their individual performance with execution and results, asked ques- not having time to actually work on
goals align with their program’s goals.Mir- tions about program management ac- program requirements.”
roring the previous response,most also in- tivities and their difficulty.This section In their comments, respondents
dicated that their program’s goals align also included questions dealing with noted a desire for a more flexible eval-
with their agency’s overall goals. the communication of performance re- uation instrument that is less subjec-
A troubling finding, the majority sults, how the PART could work tive than the 25-item PART. Illustrat-
of program managers do not seek nor better, and the resources and practices ing this point, one participant noted,
receive help from C-level executives. that could best position program man- “[PART] ratings themselves seem ar-
When asked,“To what extent do you agers for success. bitrary, not uniform across similar
seek/receive important support from Most participants reported that programs, and the final rating process
the CFO, CIO, CHCO and CAO to they receive timely, objective infor- is non-transparent.” This characteri-
accomplish the goals of your pro- mation about their program’s perfor- zation is consistent with a recently re-
gram?” the largest respondent pools cit- mance and cost status. Nonetheless, as leased GAO report, which also sur-
ed “no contribution”: 33 percent for program managers receive information, veyed federal program managers and
chief financial officers (CFOs), 33 they pass it along in varying degrees of found them frustrated with both the
percent for chief information officers transparency. For example, respon- PART and OMB’s raters.
(CIOs), 45 percent for chief adminis- dents noted that program and perfor- When asked the most motivating
trative officers (CAOs), and 46 percent mance results are shared with em- incentive, these program managers
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4. most often selected monetary rewards managers are not positioned similarly enough is known about the daily ex-
(70 percent), followed by promotions in their roles. Results point to a po- periences of this population.This survey
(55 percent), and internal recognition tential need to train program managers was an initial attempt to illuminate the
(53 percent). (Respondents could se- in a more standardized fashion, perhaps program manager role by identifying
lect more than one response.) One par- enacting a certification requirement who program managers are and what
ticipant suggested,“Significant mon- with customized training particular to they encounter day to day.We strongly
etary awards based on a percentage of this population. Consistency could encourage more research into the mak-
measurable cost savings to the gov- also be gained through increased ing of successful programs, whether
ernment [would be most motivating].” knowledge sharing online or in per- academic, practitioner based, nonprofit,
The highest-rated investment choice son. A network of program man- or, ideally, a fusion that generates coop-
to help program managers better agers—a notion that was well re- erative research.
achieve their objectives was addition- ceived in the survey—could serve to How the program manager role will
al budget for program-related re- educate program managers on best evolve in the short term under the new
sources (non-staff) (64 percent), fol- practices, for example. Formalized administration is unknown. Numerous
lowed by additional staff (53 percent), mentoring programs could also serve factors are likely to impact program
and finally additional investment in in- to improve consistency in the role. managers, but even if they are a “mov-
formation technology (50 percent). Many survey takers sought more C- ing target,” the federal government
(Respondents could select more than level support than they actually re- needs to thoughtfully convene this
one response.) Lastly, respondents ex- ceived, and discussions with a manager group more often, facilitating a contin-
pressed their desire to interact more of- were seen as a helpful activity in ued, open dialogue. Successfully posi-
ten within their peer group. When meeting performance goals. tioning the next generation of program
asked what would help their program Many survey participants are near- managers should be an issue important
be most successful, the program man- ing retirement, so the survey findings to all Americans, regardless of adminis-
agers most often selected “a network also lead to the question,“Will Gen- tration. As one survey respondent put it
of federal program managers to share erations X andY be ready to take the best,“All of us are better than one of us.”
best practices and lessons learned, in program management reigns?” Fortu-
person and online.” nately, more associations and nonprofits References
are starting to provide resources to this GAO. Government Performance: Lessons
Learned for the Next Administration on
Implications young and evolving community.The Using Performance Information to Im-
Many inferences can be drawn Partnership for Public Service’s An- prove Results, GAO-08-1026T, July 24,
from the findings of this initial study. nenberg Leadership Institute, The 2008. www.gao.gov/docdblite/
summary.php?rptno=A83047andac-
A foundational issue—the ambiguity Council for Excellence in Govern- cno=A83047.
of the program manager role—was un- ment’s Fellows Program, and other in- Naval Sea Systems Command. The Men-
derscored throughout this initiative. dustry learning and mentoring pro- toring Network: A Voluntary Learning
When compiling the list of program grams are offering specific training in Partnership. A Guide for Mentors, Ver-
sion 1, August 2007.
managers to invite to the survey, for ex- government leadership. Emerging Office of Personnel Management. “Execu-
ample, we often encountered the coaching programs, succession plan- tive Branch Employment by Gender and
question “What constitutes a ‘program’ ning, and formal training will also help Race/National Origin September 1992–
September 2005.” Federal Employment
and subsequently a ‘program manag- train junior managers to one day as-
Statistics. www.opm.gov/feddata/html/
er’ within the federal space?” and re- sume the responsibilities that our sur- tot05rno.asp.
ceived varied answers. Inconsistency vey group currently holds. OMB. Mid-Session Review, Budget of the
pervades the program management United States Government, Fiscal Year
2009. www.whitehouse.gov/omb/
community—in job title, preparation Conclusion budget/fy2009/pdf/09msr.pdf.
for the job, difficulty of everyday ac- Program management continues to Partnership for Public Service and Grant
tivities, and execution of projects. be a little understood segment of gov- Thornton. Federal Human Capital: The
The dispersion of responses for ernment. Although program managers Perfect Storm. A Study of Chief Human
Capital Officers. www.ourpublicservice.org/
professional development and training have tremendous responsibility pro- OPS/publications/viewcontentdetails.ph
reinforce the notion that program grammatically and financially, not p?id=119.
THE PUBLIC MANAGER ! WINTER 2008–09 97