U.S Environmental
Protection Agency
                       Administration and Resources
                       Management (PM-224)
                                November 1 992
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        Cultural Diversity
        Challenges for EPA
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                   Executive            S
     ummary
  There are several important questions that come up often in
discussions on the subject of diversity. This report provides
information, insights and perspectives that should help you
answer these questions as they may be relevant to you person-
ally and applicableto your role in helping EPAget its job done.
This executive summary explains the content of this report in
terms of the following questions.

Q What is diversity?

Q Why is diversity important to EPA?

Q How diverse is EP A's current work force and what changes
  can we anticipate in the future?

Q What are the major issues and concerns about diversity in
  EPA and how should EPA respond to the challenges and
  opportunities diversity presents to us?

Q What effect will these changes have on me personally and
  what can and should I do to help make a difference?


What is  Diversity?
  Diversity is concerned with valuing and fully utilizing the
talents and skills of all our people. It  emphasizes using
individual differences to build effective  teams to increase
organizational capacity and effectiveness. Individual differ-
ences may be related to race, ethnicity, gender, sexual orien-
tation, age, physical capabilities, nationality,  professional
discipline, cultural heritage and other attributes. The effective
utilization of these diverse attributes stimulates and reinforces
creative thinking, problem solving, innovation and a strong
quality ofworklife for our employees. Additional information
on the importance of valuing and managing diversity is
included in the section on "Definitions."


Why is Diversity Important

to  EPA?
  The discussion on "Diversity and EPA's Mission" makes
the point that EPA cannot achieve its mission and strategic
priorities without the full involvement and efforts of all its
employees working well together. The summary of diversity
challenges provides further perspectives  on why EPA has
approached diversity as an issue of building greater organiza-
tional capacity and more effective work teams.
 Background
   The increasing diversity of employees in the workplace has
become an important issue for managing organizations, in
both the public and private sectors.  Major demographic
changesaretakmgplaceintheU.S.laborforce. Overthenext
fewyears, an increasingpercentage of women and minorities
will be entering the work force. These changes are expected
to continue throughout the remaining years of the twentieth
century. Organizations are beginning to realize the impor-
tance of understanding and appreciating the more culturally
diverse workforce of the future. Valuing diversity will enable
organizations to benefit from a broad range of perspectives
and take advantage of invaluable contributions to creative
thinking, problem solving and innovation.

   InMay 1990, the EPAlaunchedacomprehensive initiative
to analyze the issues of working with a culturally diverse work
force.  The Deputy Administrator  established a  Cultural
Diversity Task Force and directed it to conduct an assessment
of diversity issues and to develop  recommendations and
strategies to position EPA to meet  Workforce 2000 chal-
lenges. EPA's diversity effort is based on an integrated,
systematic approach aimed at making the Agency more
effective in achieving its mission and becoming an employer
of choice.

   The Task Force became fully operational in My 1990 with
Clarence Hardy, Deputy Director of the Office of Human
Resources Management, as Chair. TaskForce activities were
organized into four work groups:

   Literature Search/Best Practices, Hector Suarez—Leader

   Data Analysis, Suzanne Olive-Leader

   Employee Survey, Bill Farland-Leader

   Training, Mike Shapiro-Leader

   This report has been prepared by the Diversity Task Force.
The findings, lessons learned and insights gainedby the Task
Force form the basis for the conclusions, recommendations
and challenges outlined in this report.

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                                                                             Executive
Work Force Diversity  in

EPA
  In the section on Analysis of Key Issues and Concerns,
EPA's work force profile is depicted as generally reflecting
the civilianlabor force with some specific exceptions. Certain
minority groups, Hispanics and American Indians are prime
examples, are underrepresented in EPA and women and
minorities are not well represented in supervisory, manage-
rial and executive positions in EPA.  EPA needs to take
specific actions to correct these imbalances.

Major Diversity Issues  and

Concerns
  This report highlights six challenges we must conquer to
make sure that EPA builds and maintains the institutional
capacity to take advantage of the richness of our diversity.
The challenges demand priority attention, bold action, and
visionary, courageous leadership at all levels. To overcome
these challenges and to take full advantage of the opportuni-
ties diversity presents, EPA must:

   diversify leadership ranks to reflect the demographic
   profile of its general work force and "feeder" population;

   ensure access for all groups to participate in the EPA
   mainstream;

   focus on enhancing and maintaining effective working
   relationships between all groups but  give priority to
   reducing tension between "professional" and "support"
   staffs;
  continue to promote involvement and empowerment of
  all employees in the work processes and participation
  forums of EPA and ensure that total quality management
  and diversity initiatives are fully integrated;

  inform and educate all EPA employees on the compel-
  ling need and advantages of diversity for EPA;

  adopt a strategic approach to diversity and implement
  a comprehensive plan of action to successfully meet the
  challenges discussed in this report.
Survey Findings
  The main survey findings provide specific information on
employees' opinions and perceptions of how EPA is dealing
with a broad range of employment and workplace issues.
Sixty-nine (69) percent of Headquarters employees com-
pleted the survey. The main issues they raised focused on:

  Recruitment and Hiring
  Most (86%) say that EPA has a good record in recruiting
  women.  But, only 48% say that competition is fair and
  open when competing for jobs at EPA.

  Training
  Most (75%) say that their opportunities for training are
  adequate. Respondents would like for EPA training to be
  sensitive to diverse cultural backgrounds.

  Promotions
  Seventy-seven (77) percent of staffhave been promoted at
  EPA. But, 70% say that promotions past GS/GM-13 are
  not equitable.

  Awards/recognition
  Eighty-nine  (89) percent  of employees have received
  awards. However, 57% are not satisfied with their recog-
  nition at EPA.

  Performance appraisal
  Forty-six (46) percent say that performance appraisal is
  fair. Most say they know where they stand. Most say they
  would like more frequent feedback.

  Work climate
  Most respondents said that the people theywork with show
  respect for one another.

  Supervisor/staff relations
  Most (78%)  say that their supervisors work well with
  cultural identities different from their own.

  Professional/support relations
  There is some conflict between professional and support
  staff.

  Sexual Harassment and Discrimination
  Thirty-nine percent (3 9%) of survey respondents perceive
  sexual harassment  as a problem in EPA.  Thirty-three
  percent (33%) of respondents said they have experienced
  some form of discrimination at EPA.

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Summary   (Cont'd)
  Best Practices
    Lessons learned from our best practices study provide some
  additional insights on how EPA might respond more fully to
  the challenge of managing diversity. The work group iden-
  tified a number of keys necessary to succeed in this endeavor:

  Q a high degree of involvement and commitment from all
     levels of management;

  Q a comprehensive training strategy to effectively implement
     and advance the concept of diversity in the workplace;

  G new skills and an enhanced level of awareness of how to use
     individual differences for  the benefit of the organization;

  Q considerable investment of time, resources, and persis-
     tence;

  Q the integration of diversity factors into the overall review,
     revamping and  utilization of agency human resources
     policies and practices;

  Q an appropriate level of staff and resources for implement-
     ing and following through with the action plans;

  G an effective management approach to diversity, based on
     sound business reasons for addressing diversity; and

  Q clearly articulated written policies and practices that out-
     line specificprograms, goals, expectations, and methods of
     accountability.
 Leadership Actions
   In response to the  questions "What effect will these
 changes have on me personally?" and "What can I do to help
 make a difference?", the Diversity Challenges Report out-
 lines a comprehensive strategy and action plan that requires
 bold action and visionary and courageous leadership at all
 levels. Communications, education,  training and infrastruc-
 ture issues are discussed, as well as roles and responsibilities
 of EPA employees and managers. Specific leadership actions
 recommended for EPA top management are described below.
 Diversity should continue to be a top management priority
 linked to the Agency's strategic plan and total quality efforts.

   The Administrator should:

G issue a strong management message on diversity to pro-
   mulgate EPA's diversity philosophy and outline key fea-
   tures of EPA's diversity strategy;

Q designate a Strategic Management Leadership Council
   (SMLC) charged with overseeing and directing an effort to
   consolidate and integrate change initiatives like pollution
   prevention, strategic planning, total quality management
   and managing diversity; and

G sponsor senior management forums focusing on cultural
   diversity for EPA and include diversity leadership training
   for SMLC and other EPA executives.

   Finally, EPA  should be as resourceful as possible in
 providing  the necessary incentives and reinforcements to
 make diversity successful. There are specific recommenda-
 tion included in the diversity strategy. Ultimately, oursuccess
 with diversity will depend in large part on how we define
 success, evaluate results and hold ourselves accountable.

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Diversity Challenges for EPA - November 1992                                                                A Strategy for Bold Action

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Diversity Challenges for EPA - November 1992                                 A Strategy for Bold Action
           Contents
           Executive Summary	     3



           Diversity and EPA's Mission	     9



           Definitions: Valuing and Managing Diversity	    11



           Diversity Challenges for EPA	    13



           Main Survey Findings	     17




           Analysis of Key Issues and Concerns	    25




           Strategy and Implementation	     47



           Bibliography	     57



           Acknowledgements	     59

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Diversity Challenges for EPA - November 1992                                                               A Strategy for Bold Action

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Diversity Challenges for EPA - November 1992
                                 A Strategy for Bold Action
Diversity  and  EPA's Mission

   The mission of EPA is to preserve and improve the quality
of the environment, protect human health and safeguard the
productivity of natural resources on which all human activities
depend. The people who work at EPA are dedicated to this
mission. Highly skilled and culturally diverse, we are commit-
ted to  using quality management processes that encourage
teamwork and promote innovative and effective solutions to
environmental problems. In particular, we are committed to
ensuring that:

 Q Federal environmental laws are implemented and enforced
    effectively.

O  U.S. policy, both foreign and domestic, fosters the integra-
    tion of economic development and environmental protec-
    tion so that economic growth can be sustained over the long
    term.

Q  Public and private decisions affecting energy, transporta-
    tion, agriculture, industry, international trade, and natural
    resources fully integrate considerations of environmental
    quality.

Q  National efforts to reduce environmental risk are based on
    the best available  scientific information communicated
    clearly to the public.

Q  Everyone in our society recognizes the value of preventing
    pollution.

Q  People have the information and incentives they need to
    make environmentally responsible choices in their daily
    lives.

Q  Schools and community institutions promote environmen-
    tal stewardship as a "national ethic."
  This very ambitious statementis anexcerptfromthe Agency's
strategic plan, Strategic Directions for the U. S. Environmental
Protection Agency: "Preserving Our Future Today" (1991). It
cannot be achieved without the full involvement and efforts of
all of EPA employees working well together and satisfying our
customers, the American tax payers. Thus, diversity is intri-
cately linked with the EPA mission.

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Diversity Challenges for EPA - November 1992                                                                 A Strategy for Bold Action
          10

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Diversity Challenges for EPA - November 1992
                                                    A Strategy for Bold Action
Definitions:  Valuing and Managing Diversity
   In this section we define and distin-
 guish among some of the terms frequently
 used in working with diversity.


 Basic Principles

   Two principles  that are critical to
 working with people effectively are: (1)
 respect for the individual and (2) under-
 standing and appreciating differences.
 These are basic rules and are obvious to
 many, but when they are not practiced,
 there can be tension and problems in
 work relationships.  Productivity and
 performance suffer as a result.


 Respect for the
 Individual

   Recognizing human dignity and giv-
 ing respect to each individual are funda-
 mental and essential elements of positive
 human relations.   The premise is that
 people work better when they feel they
 are valued. Value is felt when individual
 differences are recognized and appreci-
 ated. Differences provide opportunities
 for learning, and learning from differ-
 ences is an important key to competence
 and empowerment. Valued and empow-
 ered people build supportive and produc-
 tive relationships. As a result, the work
 group and the organization are success-
 ful.
 Valuing  Differences

   Diversity focuses on understanding,
 valuing and effectively using individual
 differences to realize the full human po-
 tential in an organization. In this con-
 text, there are certain attitudes, behav-
 iors and  core values that can have a
 powerful  influence on performance and
 effectiveness.  Attitudes, behaviors and
 core values make up what is frequently
 and casually referred to as organiza-
 tional culture.  Organizational culture
determines the way things are done and
communication, education and experi-
ence are important variables in this pro-
cess. This point underscores the critical
importance of diversity training to the
process of building and maintaining the
capacity to fully utilize all human abili-
ties and potential. Valuing differences
begins with awareness. Changes in atti-
tude, behavior and values are critical next
steps. Real success comes with the ac-
quiring of "diversity" skills and applying
them in daily activities.

   Since diversity is often confused with
Affirmative Action, the following discus-
sion seeks to clarify the connection.


Affirmative Action and
Diversity

   Affirmative Action involves special
efforts or programs to recruit, hire, de-
velop and advance members of groups
protectedby anti-discrimination laws. In
one sense, a goal of Affirmative Action is
the creation of a diverse work force with
special emphasis on hiring and upward
mobility  of groups previously excluded.
Valuing difference goesbeyondmere com-
pliance with Equal Employment Oppor-
tunity and Affirmative Action legal and
regulatory requirements.

   Diversity, as defined in this report,
goes beyond the appeal of legal and social
tenets of Affirmative Action.  It focuses
on using all people resources to get our
job done.

   The demographic projections in the
Work force 2000 story invoke a business
necessity tobe genuinely concerned about
valuing diversity and managing diver-
sity. Dr. R. Roosevelt Thomas, an expert
on diversity, contends that there are dis-
crete levels of organizational competence
in addressing diversity.  The differences,
Thomas asserts, may be viewed in  terms
of the goal, primary motive, focus, ben-
efits and challenges at each level.
  For an organization in the Affirma-
tive Action mode, the goal is to recruit
and hire members of iheprotected groups,
with the basic motive being legal and
regulatory compliance. With the main
focus on special recruitment and hiring
programs, the entry level representation
in this type of organization is increased.
These gains are usually of short-term
duration and quite frequently these Af-
firmative Action efforts create their own
backlash. A cycle of frustration repeats
itself and the benefits are often judged to
be marginal at best.

  For an organization in the  Valuing
Differencesmode, the goal is to establish
quality interpersonal relationships in
addition to creating a diverse work force.
Here, the  motive is to gain from the
richness that can flow from diversity and
to have harmony in the organization.
The focus is on understanding,  respect-
ing and valuing differences among vari-
ous groups. This is done in the overall
context of the business enterprise.  The
results may exceed those of an organiza-
tion in the Affirmative Action mode and
one benefitmaybea greater receptivity to
Affirmative Action efforts.  One of the
main challenges of valuing differences is
ensuring  the proper balance  between
management and systems improvement
versus emphasizing harmonious inter-
personal relationships. This challenge
also seems to be cyclical in nature and
produces a certain amount of frustration.
                                                                                                    11

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Diversity Challenges for EPA ~ November 1992
                                                      A Strategy for Bold Action
    When an organization is aiming for a
 level of sophistication in  managing
 diversity, its main goal is the full utiliza-
 tion of all its people. The primary motive
 here is to attain competitive advantage.

    Organizations that are successful in
 managing diversity rely on  a strategic
 approach. Diversity is seen as an oppor-
 tunity to build unique organizational ca-
 pacity. These organizations give priority
 to ensuring that their corporate cultures
 and systems are supportive of diversity
 goals and objectives.

    The principle of inclusion of all em-
 ployees characterizes this approach to
 diversity.  A primary benefit of this ap-
 proach is that a successful organization
 can rightfully lay claim to being an "em-
 ployer of choice." This approach pro-
 vides escape from  the frustrating cycle
 that tends to characterize organizations
 that are stuck in a legalistic Affirmative
 Action approach to diversity.

    The Managing  Diversity approach,
 which is the preferred approach for EPA,
 is definitely not easy and requires a focus
 on the future.  The requirements for
 flexibility and adaptability of manage-
 ment and leadership style present many
 different and difficult challenges.  Lead-
 ing-edge organizations are committed to
 this approach because they believe the
 advantages more than outweigh the in-
 vestment and costs. They tell their sto-
 ries in terms of bottom line increases in
 productivity, quality and continuous im-
 provement.
Diversify, Productivity
and Quality

  In the context of the preceding discus-
sion on valuing and managing diversity,
it should be clear that the connection
between diversity, productivity and qual-
ity is much more than superficial. The
organizations we studied in our bench-
marking and best practices survey gave
many examples of the benefits of diver-
sity to achieving their "business" objec-
tives.   In her recent book, The New
Leaders - Guidelines on Leadership Di-
versity in America. Ann M. Morrison
presents impressive evidence based on
research into the experience of sixteen
organizations that have been especially
successful in their diversity efforts (Jos-
sey-Bass Publishers, 1992).  Morrison
reports:

  "The hard  realities  of competition
and the marketplace are convincing many
executives that diversity is a necessary
part of their business strategy.  They
support diversity for four business rea-
sons:

  to keep and gain market share,

  to reduce costs,

  to increase productivity, and

  to improve the quality of management
  in their organizations."
   Chapter 1  of Morrison's  book,
"Achieving Benefits From Leadership
Diversity," is devoted to making the case
for the diversity, productivity and quality
connection. The  fact that diversity is
integrated into the business strategies of
these organizations in Morrison's study
indicates how critically important diver-
sity is to mission accomplishment. This
is one of the most important lessons
learned from other organizations that
have dealt  with diversity as a manage-
ment priority.  This  and other  major
findings based on the "research" track of
this study are summarized in this report.
        12

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  Diversity Challenges for EPA - November 1992
                                                                                           A Strategy for Bold Action
D
iversity Challenges  for  EPA
            Diversity Philosophy Statement


        The Importance of Diversity
         Diversity is concerned with valuing and fully utilizing the talents and
      skills of all our people. It emphasizes using individual differences to
      build effective teams to increase organizational capacity and effective-
      ness. Individual differences may be related to race, ethnicity, gender,
      sexual orientation, age, physical capabilities, nationality, professional
      discipline, cultural heritage and other attributes. The effective utiliza-
      tion of these diverse attributes stimulates and reinforces creative think-
      ing, problem solving, innovation and a strong quality of work life for our
      employees.

        Our Commitment to Diversity
          Diversity provides the Environmental Protection Agency with the
      resources necessary to successfully achieve our important environmental
      goals and priorities. Our aim is to increase our understanding of how to
      involve and empower all our people to the fullest to carry out the day-to-
      day operations of EPA. EPA's commitment to diversity is based on a
      belief that we can create an environment inside EPA in which all our
      people can realize their full potential.  Because we see diversity as an
      asset, it is important to attract and retain the broad range  of talent
      reflected in the nation's rich cultures and the diverse labor pool.

        Diversity, Quality and Our Mission
         Our challenges and opportunities have local, national and interna-
      tional dimensions. Our diversity will help us meet these challenges and
      take full advantage of all opportunities. Making the most of our diversity
      is an inherent part of becoming a quality organization and is critical to
      meeting the needs of all our customers.  By building on our common
      values and goals, we are able to capitalize on the advantages stored in our
      differences.  Developing and ensuring a strong, diverse organization is
      essential to achieving our mission of protecting human health and the
      environment, for current and future generations to come.
  In commissioningthe EPA Cultural Diversity Study, Deputy
Administrator Habicht demonstrated clear vision and a firm
understanding of the critical linkage of diversity to our mission.
Mr. Habicht said, in his directive creating the Task Force: "The
goal of the Task Force is to construct a profile of past practices
and prevailing attitudes with regards to staffing, staff develop-
ment and general sensitivity towards minority and women
concerns. This process should also assist in the implementa-
tion of total quality management principles which are based, in
part, oncreating an institutional culture that will drawupon the
unique contribution of each person in the work force."
                                                                    In a very real sense, diversity is the uniqueness
                                                                  that defines each person.  The individual talents,
                                                                  skills, energies, abilities, and contributions are the
                                                                  richness of diversity. From an organizational per-
                                                                  spective, the concern for diversity is to fully utilize
                                                                  all people resources to achieve the purposes and
                                                                  goals of the organization.  Increasingly, it is recog-
                                                                  nized that successful organizations are sustained by
                                                                  high-performing work teams.   High-performing
                                                                  teams are made up of high-performing individuals
                                                                  who work effectively together to achieve a common
                                                                  purpose or goal.
                                                                    The meaning and importance of diversity to EPA
                                                                  are captured in our "Diversity Philosophy State-
                                                                  ment."  The statement stresses the importance of
                                                                  diversity to achieving our mission and quality
                                                                  goals. It is also an affirmation of EPA's commit-
                                                                  ment to diversity, which, in effect, is a covenant
                                                                  with our employees.

                                                                     This report highlights six challenges we must
                                                                  conquer to make sure that EPA builds and main-
                                                                  tains the institutional capacity to take advantage of
                                                                  the richness of our diversity.  Capitalizing on
                                                                  diversity means the full utilization of all our people
                                                                  to achieve our environmental mission and goals.
                                                                                                              13

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Diversity Challenges for EPA - November 1992
                                                     A Strategy for Bold Action
  This overview report has been pre-
pared by the EPA  Cultural Diversity
TaskForce. The report contains detailed
information on the activities and results
of the four work groups that were set up
at the beginning of the diversity initia-
tive. The findings, lessons learned and
insights gained from the work groups'
efforts form the basis for the conclusions
and recommendations contained in this
presentation of diversity challenges that
confront EPA.  These challenges de-
mand priority attention, bold action and
visionary and courageous leadership at
all levels. To overcome these challenges
and to take full advantage of the opportu-
nities diversity presents,  EPA must:

    diversify its leadership ranks  to
    reflect the demographic profile of its
    general work force and "feeder"
    population;

    ensure access for all groups to par-
    ticipate in the EPA mainstream;

    focus on enhancing and maintain-
    ing effective working relationships
    between all groupsbut give priority to
    reducing tension between "profes-
    sional" and "support" staffs;

    continue to promote involvement
    and empowerment of all employees
    in the work processes and participa-
    tion forums of EPA and ensure that
    total quality management and diver-
    sity initiatives are fully integrated;

    inform and educate all EPA em-
    ployees on the compelling need and
    advantages of diversity for EPA;

    adopt a strategic approach to di-
    versity and implement a compre-
    hensive plan of action to success-
    fully meet the challenges discussed in
    this report.
Diversifying EPA Leadership
Ranks

  The demographic profile  of EPA's
managerial work force is in stark con-
trast to the composition of EPA's general
workforce. WhileEPA'stotalworkforce
generally mirrors the civilian labor force
(CLF), there is very little racial  and
general  diversity in EPA's leadership
ranks.  To  correct  this situation, EPA
needs a fresh approach and a new defini-
tion of success related to filling manage-
rial positions.  We  need to continue to
build diverse "feeder" groups, enhance
developmental programs, accelerate suc-
cession planning, and apply a variety of
definitive accountability practices to help
ensure steady progress  in changing our
leadership profile.

  The new approach is based on parity
with the EPA "feeder" population and it
also applies to developmental programs,
management  succession planning and
other special programs related to staffing
supervisory, managerial and  executive
positions.  Examples of some effective
accountability practices  used by other
successfuland"leadingedge" organiza-
tions are discussed in the strategy section
of this report.


Ensuring Access and
Opportunities

  EPA must continue its efforts to make
sure that all groups are part of the main-
stream ofEP A. Access is viewed in terms
of opportunities for recruitment and hir-
ing; training and development; promo-
tion and career advancement; and per-
formance, awards and recognition. For
most minority groups,  hiring and ad-
vancement  are the  cornerstone of the
access issue.  Many of the equity issues
and concerns expressed by women and
minorities revolve  around these basic
areas. These subjects are discussed in
more depth in the "Issue Analysis" sec-
tion of this report.
   Since FY1989, EPA has made steady
progress in increasing racial and gender
diversity in our general work force. De-
spite the overall recent hiring successes,
EPA has several areas where definite
improvement is still needed.  Certain
groups like American Indians, Hispan-
ics, and persons with disabilities are not
well represented in the EPA work force.
They don't have access to certain catego-
ries of jobs and are not well represented
at all grade levels.  EPA needs to give
priority to correcting these imbalances.


Improving Working
Relationships

   The survey responses indicate that, on
the whole, EPA employees feelvery posi-
tive about their relationships with their
supervisors and peers. A large majority
ranging from 54% ("Other" group re-
spondents) to 81% (white respondents)
agree with the statement: "Peoplelwork
with show respect for one another." An
even larger majority (63% of all respon-
dents) credit their supervisors as "deal-
ing fairly with employees of different
cultural backgrounds."

   For three other important areas que-
ried in the survey, results are not quite as
positive. One areaisthe perception that
certain minority groups  are favored.
The other area is mentoring, which got a
very mixed return.  Perhaps the most
important relationship issue is the "ten-
sion between professional and support
staffs." Two possible reasons cited most
frequently in survey responses were: (1)
lack of clarity in the definition of roles
and responsibilities of support staff and
(2) lack of cultural sensitivity.

   Some of the training and developmen-
tal programs already in place at EPA can
be directed toward resolving these issues.
Additional  customized training efforts
might be needed.
         14

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Diversity Challenges for EPA - November 1992
                                                    A Strategy for Bold Action
Employee Involvement and
Empowerment

  For EPA to get maximum benefitfrom
work force diversity, we must meet the
challenge of involving and empowering
employees. We need to ensure involve-
ment and empowerment of all employees
in the work, every work process and all of
the Agency's participation forums.  In-
volvement and empowerment are keys to
increasing organizational strength and
capacity to better achieve mission, qual-
ity and continuous improvement.

   The Task Force has cited a number of
innovative practices within EPA that give
us a base of strength on which to build.
Responses to survey questions related to
employee job satisfaction offer both en-
couragement and  a challenge.  Seventy
(70) percent of survey respondents are
satisfied with their job and 27% are not.
While 56% agree with the statement: "I
am  satisfied with my involvement in
decisions that affect my work," a signifi-
cant 42% disagree with the statement.

   Our line managers and supervisors are
definitely a critical ingredient in the pro-
cess of empowerment. We need to be as
resourceful and an supportive as we can
to make them more effective. Our man-
agement training courses should con-
tinue to emphasize and reinforce this
message.


Informing and  Educating EPA
Employees

   EPA must make diversity training and
education a top priority. Diversity train-
ing must be made available to employees
at all levels based on the role and respon-
sibilities they assume within the organi-
zation. Also, the training must be clear in
its  purpose, objectives and focus, and
should fully address both awareness and
skills needs, as well as  individual and
organizational needs.
  All employees  need to know  how
EPA is addressing diversity. They need
tobeawareofthe significance of diversity
to accomplishing  EPA's mission and
they must have a clear understanding of
their roles and responsibilities for mak-
ing it happen. It is particularly impor-
tant for all employees to know how to
work effectively on diverse teams and be
able to apply these skills to a variety of
work situations typical in EPA.

  EPA must make sure that supervisors
have the skills and competence to effec-
tively manage and lead diverse work
teams.  Our management courses, like
Framework for Supervision and Keys to
Managerial Excellence, our assessment
workshops and the core curriculum avail-
able through the EPA  Institute are all
good avenues to provide specific learn-
ing to meet this important need.

  To be successful, diversity  training
must increase understanding and com-
petence of managers and executives at
all  levels.  They need to be able to
analyze and deal successfully with a
variety of diversity issues and concerns
and to correct institutional practices that
might tend to exclude employees from
the work, work processes and participa-
tion forums within their organization.
All managers and executives  must be
explicitly encouraged to support EPA's
diversity goals and priorities. They also
need to see that, because diversity ben-
efits EPA, it is also in their best interest.
Adopt a Strategic Approach

   To successfully address the issues pre-
sented in this report, EPA needs to adopt
a strategic approach to diversity. The
strategic approach involves:

   accepting diversity as a management
   and strategic issue;

   assessing needs and concerns and
   developing action plans to resolve
   them;

   providing awareness, training and
   education to support desired goals
   and objectives;

   revamping policy, systems and prac-
   tices as needed;

   providing for and ensuring necessary
   reinforcement and accountability;

   reviewing, evaluating and monitor-
   ing progress and results.
  The comprehensive organizational as-
sessment conducted by the Cultural Di-
versity Task Force and this report repre-
sent critical first steps by EPA. They put
the change process in motion. The chal-
lenges presented here are surrounded by
real opportunities for change in EPA.
                                          The next section highlights
                                        major survey findings that may
                                        guide specific choices and actions
                                        EPA may take to  aggressively
                                        move forward in creating a qual-
                                        ity culture which truly values and
                                        capitalizes on diversity. We must
                                        give priority to diversity and we
                                        must provide adequate direction,
                                        support, incentives and encour-
                                        agement to supervisors, manag-
                                        ers and employees to facilitate the
                                        changes diversity and quality re-
                                        quire.
                                                                                                      15

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Diversity Challenges for EPA - November 1992                                                                A Strategy for Bold Action
          16

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Diversity Challenges for EPA - November 1992
A Strategy for Bold Action
                             Mam  Survey Findings
                      This summary contains two sets of survey findings. The first set of
                    findings includes a summary of lessons learned from a "best practices
                    survey"  on how other successful organizations deal with work force
                    diversity. It includes a list of exemplary practices other organizations use
                    to support their diversity efforts. Some of EPA's own exemplary practices
                    are identified and discussed.

                      The second set of survey findings includes a summary of the results from
                    the EPA Headquarters employees survey.  This survey was aimed specifi-
                    cally at assessing the perceptions, opinions and attitudes of EPA employees
                    on cultural diversity issues and concerns related to their employment with
                    EPA.  The survey probed ten categories of personnel and workplace issues
                    and the results are included in this summary.
                                                                                                  17

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Diversify Challenges for EPA -- November 1992
                                     A Strategy for Bold Action
  Best Practices Survey
  Findings


] Major Findings and Lessons
  Learned From Other
  Organizations

    In order to develop and implement an effective
  cultural diversity initiative, many key ingredients
  are necessary, including:

 Q A high degree of involvement and commitment
    will be required from all levels of management.

 Q A comprehensive training strategy is necessary to
    effectively implement and advance the concept of
    diversity in the workplace.

 Q We will need new skills and an enhanced level of
    awareness in understanding how to use indi-
    vidual differences for the benefit of the organiza-
    tion.

 Q The diversity change process will require a con-
    siderable investment of time, resources, and per-
    sistence in order to be successful.

 Q Successful implementation will necessitate the
    integration of diversity  factors into the overall
    review, revamping and utilization of agency hu-
    man resources policies and practices.

 Q An appropriate level  of staff and resources needs
    to be  devoted to implementing and  following
    through with the action plans.

 p An effective management approach to diversity is
    based on sound business reasons for addressing
    diversity.

 Q The Diversity Initiative needs to be clearly articu-
    lated in written policies and practices that outline
    specific programs, goals, expectations, and meth-
    ods of accountability.
Identification of Exemplary Practices that Enhance
Diversity (from Other Organizations)

  Recruitment — A number of the organizations interviewed are
using recruiting as a major means to manage cultural diversity.
The emphasis on recruitment ties organizational staffing needs
and a goal of attracting the best to a particular focus on hiring
minorities and women. Intense  recruitment of minorities and
women will help an organization achieve better representation in
the workplace.  But, in and of itself, it will not create or nurture a
culture that values diversity.
  Mentoring - This practice is grounded on the principle that a
network of experienced managers can advise/counsel employees
to better prepare  them for greater responsibilities.  Mentoring
provides assistance in the emotional as well as the cognitive
transition that takes place when acquiring additional levels of
responsibility.  This technique can be an effective tool to assist
diverse employees to develop skills; it provides them experiences
with which to develop professionally.

  Core Groups - In an effort to help employees relate to one
another and gain interpersonal skills, the practice of setting up
"CoreGroups"hasbeenimplementedbyoneofthe organizations
surveyed. Several core groups meet routinely to discuss informa-
tion, feelings, attitudes, and behaviors that are of concern to the
individual members. This vehicle allows employees to experience
feelings, express  attitudes, and demonstrate behaviors without
repercussions from the other members of the group. In essence, the
group is a laboratory for individual growth.

  Performance  Management ~ Some of the private  sector
organizations that we visited hold their managers accountable for
managing or addressing diversity.   Management bonuses are
contingent on positive performance in this area.  The  major
inducement, however, is the expectation of the management peer
group to make progress in this area.
         is

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Diversity Challenges for EPA - November 1992
                          A Strategy for Bold Action
   Training - Training is a major tool for addressing
diversity at a large number of the organizations
surveyed. In our discussions, however, we were cau-
tioned not  to rely on training as the sole vehicle
driving the change effort. While management and
human resources professionals acknowledge that
training is  necessary for the change process, they
agree that training, in and of itself, is not sufficient to
make the transition.

   Cultural Diversity and Affirmative Action -
Most of the organizations make adistinction between
Managing Diversity and Affirmative Action.  It is
important,  they  believe, for the  difference to  be
apparent to those involved  in the diversity effort,
although there is no doubt in their minds that Affir-
mative Action and Managing Diversity are related
issues. While Affirmative Action is seen as a way to
redress discriminatory practices, cultural diversity is
understood to be a resource utilization issue. Diver-
sity is seen as a strategy to ensure maximum utiliza-
tion of all employees.   Affirmative Action and
Diversity, working together, form a major portion of
the organization's employment strategy for work
force planning and utilization. The outcome will
affect the organization's overall performance.
   Cultural Diversity and Total Quality Manage-
 ment - These two initiatives have been combined by
 several major  corporations and a Federal agency.
 Their rationale is that continuous review and im-
 provement of work processes can be significantly
 enhanced by inclusion of employees with diverse
 backgrounds and capabilities. Diverse employees are
 apt to provide a range of different perspectives that
 would have a positive impact on the work processes.
 If diverse people are not relating well, the whole
 TQM effort and the group process will be hampered.
 EPA's Exemplary Practices

   Involvement/Inclusion
   The Best Practices Work Group identified the
 principle  of involvement/inclusion as salient in
 managing cultural diversity. This principle is fur-
 ther defined by four underlying attributes.  These
 attributes include: Knowledge and Skills, Informa-
 tion, Influence, and Incentives.

   Knowledge and Skills
Q The EPA Institute and the Superfund Academy
   are illustrative of current operations whose pur-
   pose is to enhance our employees' work-related
   knowledge base and  to increase work perfor-
   mance skills. Improving the knowledge and skill
   level has positive effects on work performance
   and effectiveness.

Q GLO (Greater Leadership Opportunities) is an-
   other program that demonstrates the enhance-
   ment of EPA employees' knowledge and skill
   levels.   It provides visibility  for women and
   minorities and opportunities to enhance their
   leadership and management skills.

Q The Minority Academic Institutions Task Force
   has provided a framework and action plan for the
   Agency to have a more productive relationship
   with a number of colleges and universities.

   Information
   The EPA Library currently houses a myriad of
 management and scientific materials and  books to
 support the activities of our employees.

    Influence
Q Total Quality Management (TQM) affords EPA
   staff the opportunity to be actively involved and
   influence how work is done and how delivery of
   services can be improved. Continuous improve-
   ment is dependent on the initiative of individuals
   to bring about change, and this will be the force
   that transforms cultural diversity into a way of
   doing business at EPA.

Q The Human Resources Council (HRC) is  an
   advisory  body to  Office of Human Resources
   Management and  the Administrator regarding
   Agencywide human resources issues,  and pro-
   vides a national forum for Agency employees to
   express their ideas and  carry out activities to
   improve the work life at EPA.
                                                                                                      19

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 Diversity Challenges for EPA - November 1992
                                    A Strategy for Bold Action
Q TheMini-Councilconceptprovides em-
   ployees with the opportunity to have
   input into the management problem-
   solving and decision-making process.
   Employees are increasingly involved
   in the operation of their respective work
   group.   The Mini-Councils  serve as
   conduits for raising issues to the na-
   tional HRC.

Q The Scientific-Technical (Sci-Tech)
   Advisory Committee and Women in
   Science and Engineering (WISE) en-
   deavor to make EPA attractive to tal-
   ented, creative scientific and technical
   people and to support them once they
   are on board.

Q The Women's Advisory  Council,
   Blacks in Government, the Hispanic
   Advisory Council, Handicapped Advi-
   sory Council, and  the Asian Pacific
   American Community are further ex-
   amples of vehicles available for em-
   ployees to influence the decision-mak-
   ing process within EPA.
                     2J  Employee Survey
CO
 Q The Secretarial Advisory Committee (SAC) advises Office
   of Human Resources Management and the HRC regarding
   ways to improve morale and productivity of secretarial/
   clerical and other support employees and to improve career
   growth and mobility for employees in these positions.

   Incentives
   EPA has developed an expansive incentives portfolio for its
 employees. These incentives range from flexible work sched-
 ules, wellness programs,  day-care centers, a leave-transfer
 program, a multitude of training opportunities and a variety of
 awards and recognitions.

   These EPA exemplary practices compare very favorably
 with what other successful organizations are doing to create an
 organizational culture and climate supportive of diversity. The
 real test, however, is what our employees think aboutwhatEPA
 is doing. Thus, the employee survey results provide EPA with
 very useful information for addressing work force diversity
 issues.
         20
Findings

   The survey analysis focused on the fol-
lowing 10 key categories of issues: recruit-
ment and hiring; training and employee
development, promotion, awards and recog-
nition, performance appraisal, work climate,
supervisor/staff relationships, professional/
support staff relationships, sexual harass-
ment, and discrimination. Major analyses
included: gender, race, age, job class (pro-
fessional or clerical/support), the physically/
mentally challenged, supervisory vs. non-
supervisory positions, and education level.

   Differences among these groups in their
experiences,  attitudes and perceptions re-
garding the key issues were identified and
the major findings are summarized below.


1. Recruitment and Hiring

There is a general belief among most (86%)
staff that EPA has a good record in recruiting
women.
     A majority (63%) of the respondents say that EPA has done
     a good job in recruiting minorities.  Many members of
     minority groups, however, particularly African American
     males (68%), state that EPA does not have a good record in
     this area.

     There is strong overall agreement (75%) that EPA is commit-
     ted to Affirmative Actioa Again, there is less agreement from
     members  of minority groups, particularly from African-
     American males (43%).

     While three-quarters of the respondents believe that EPA has
     a commitment to Affirmative Action, 39%, mostly white
     respondents, say that it leads to hiring less qualified employ-
     ees.

     Only 48% of the EPA respondents think that competition is
     fair and open when competing for jobs at EPA.

     Two-thirds of the respondents say that informal procedures
     exist which prevent equitable recruitment.  This negative
     perception is found more frequently among women and
     members of minority groups.

     Employees come to work for a variety of reasons. The most
     prevalent include: "to help protect the environment," "to
     accept a good position," "good benefits," "there was a
     vacancy," and "the security of a government job."

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Diversity Challenges for EPA -- November 1992
                         A Strategy for Bold Action
   2. Employee Development and Training

     Most employees (75%) believe that they have an
     adequate opportunity to participate in training at
     EPA.

     Most employees (86%) think that knowledge about
     available training is readily accessible.

     Most employees (80%) who responded to the survey
     indicate that they believe that EPA is committed
     (26%) or somewhat committed (54%) to staff training
     and development.

     There is high agreement that neither age nor gender
     is a barrier to participating in training at EPA.

     Many members of racial and cultural minorities,
     particularly those with no college degree, in support
     or clerical positions and in lower pay grades, feel left
     out of training opportunities which prepare them for
     higher level positions.

     There is an expressed desire to make EPA training
     more sensitive to the diverse cultural backgrounds of
     its employees.

     With specific reference to mentoring as a training
     technique, it is neither a well publicized nor fre-
     quently used tool for career development at EPA.

     Only about a third (3 5%) of the respondents reported
     ever having a mentor at EPA, with more women
     (40%) than men (29%)  having had mentors.  There
     are feelings expressed that it is more difficult for
     members of minority groups to enter into a mentoring
     relationship, but there is little difference among the
     white, African-American, and Hispanic respondents
     in terms of the percent of those who have had mentors
     at some time during their tenure at EPA.
3. Promotion

  Over three-quarters (77%) of the EPA staff
  that responded indicate that they have received
  a promotion at EPA.

  The promotion rates are  fairly comparable
  across the various groups, with members of the
  Asian Pacific group having a lower rate of
  promotion than the other groups.

  About two-thirds (68%) of the  respondents
  believe that there is fair and equitable promo-
  tion up to the GS/GM-13 level.

  Itappearsthatmostprofessionals(78%)seeno
  barriers to advancement to  the GS/GM-13
  level. There are many minority employees in
  the lower grade levels, however,  who believe
  that there are significant barriers to the ad-
  vancement of administrative support staffs.

  There are widespread feelings among a large
  majority (70%) of employees that promotion
  past GS/GM-13 is not equitable. This belief is
  particularly prevalent amongfemalesand mem-
  bers of minority groups.  Among this latter
  group there is a perception of a "glass ceiling"
  at EPA.
p
I Percentage of Employees
romotion Past GS/GM-13 Not Equitable


70%








•















                                                                                                    21

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Diversity Challenges for EPA - November 1992
                                  A Strategy for Bold Action
  Only about half (51%) of the respondents are satisfied with
  their chances for promotion; satisfaction is even  lower
  among the members of minority groups.

  Most of the dissatisfaction with promotion opportunities
  comes from those in the lower pay grades, in support or
  clerical positions, and with no college degree. They per-
  ceive that limited development opportunities are indeed a
  major barrier to advancement within EPA.

  There is a perception among many women (64%), African-
  Americans (72%), Hispanics (70%), and workers over the
  age of 50 (68%), that they do not have an equal opportunity
  for advancement within EPA.

  There is a widespread belief (79%) among most segments of
  the EPA work force that there are no clear criteria for
  promotion.  The strongest negative feelings come from
  minority males, minority females, and white females.

  A large majority of white males (72%) think that women and
  minorities have  equal opportunities  for promotion into
  supervisory and management positions.  Many women
  (67%) and minority group members (47%-75 %) say they do
  not.
4. Awards and Recognition

  Despite the fact that 89% of EPA employees have received
  awards, 57% of the respondents are not satisfied with the
  recognition they receive at EPA.

  There is a strong general perception among many employ-
  ees that awards are often determined by favoritism.  Only a
  third of the respondents think that awards are given to the
  most deserving employees.
5. Performance Appraisal

  Somewhat less than half (46%) of the survey respondents
  believe that the performance appraisal process is a fair
  system.

  Most of the respondents (80%) indicate that they are fully
  aware of the appraisal process at EPA; 51% indicated that
  they do not get useful feedback on their performance on a
  regular basis.
6. Work Climate

  Most respondents (76%) think that the people they work
  with show respect for one another.

  Most employees (87%) believe they are treated with respect
  by their peers.

  While a majority of people do not see the lack of cultural
  sensitivity as an issue, a significant number of individuals
  (the majority of some groups) thinks that it is a problem.
  Overall, respondents believe it leads to tension between
  upper and lower management (30%), management and
  non-management (40%), and even among members  of
  work groups (26%).

  Many people, including a large number of minority group
  members, are not satisfied with the grievance procedures.

  Most people express general satisfaction with their jobs, but
  are much less satisfied with their pay.  This is particularly
  true of those without college degrees, in the lowest pay
  grades, and in the support or clerical positions.


7. Supervisor/Staff Relations

  The majority (73%) of the employees responding believe
  they can discuss sensitive issues such as racism, sexism, and
  bias with their supervisor.

  Most respondents (66%) think that their supervisor deals
  fairly with everyone and plays no favorites.

  Most respondents (78%) say that their supervisors are
  doing a good job of working with cultural entities different
  from their own.

  A majority (58%) of the respondents believe that the
  physically challenged employees at EPA have adequate
  facilities to do their jobs completely and  safely. Many,
  however, do not agree.  The strongest disagreement comes
  from those who are physically challenged, with only half of
  them agreeing that they have adequate facilities.


8. Professional/Technical Staff and Support/
Clerical  Staff Relations

  There are some very strong feelings generated by the issue
  of the relationship between the professional/technical staff
  and the support/clerical staff. Virtually half (49%) of the
  respondents perceive that a conflict does exist between the
  two staffs, while the other half (51%) does not.
        22

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Diversity Challenges for EPA - November 1992
                                  A Strategy for Bold Action
  More professional/technical staff members (50%) think that
  there is a problem than support or clerical staff members
  (43%).  Females are more likely to see a problem.

  There seems to be some general agreement (64%) that the
  roles and responsibilities of the professional/technical staff
  are clearly defined.  There is less agreement (47%) that the
  roles and responsibilities of the support/clerical staff are well
  defined.

  Most (69%-72%) respondents believe that the groups respect
  each other. Thisleavesafairlyhighpercentageofpeoplewho
  don't agree.

  There are data to indicate that many members of the support/
  clerical staff (72%) believe that there is a lack of cultural
  sensitivity on the part of  members  of the professional/
  technical staff.

  There is a conflict between the two groups. The survey data,
  however, do not pinpoint the particular cause or causes of the
  conflict. Further study is needed on this issue.
9. Sexual Harassment

  Sexual harassment is aproblem atEPA. Twenty-two percent
  of the females and six percent of the males reported incidents
  of sexual harassment at EPA.
  Thirty-nine percent of the respondents think that sexual
  harassment is a "somewhat serious," "serious" or "very
  serious" problem at EPA.
10.  Discrimination

  Discrimination is a problem at EPA for 33% of the staff
  responding to the survey, indicating that they have experi-
  enced some form of discrimination.

  More females than males reported incidents of discrimina-
  tion.

  The most common forms of discrimination reported are
  racial, gender, and age.

  Thirty (30)  percent of the respondents  rate racial
  discrimination as a serious problem at EPA.

  Twenty-three (23) percent rate gender discrimination as a
  serious problem at EPA.

  Nineteen (19) percent rate age discrimination as a serious
  problem at EPA.
                                                                                                     23

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Diversity Challenges for EPA - November 1992                                                                A strategy for Bold Action
        24

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 Diversity Challenges for EPA - November 1992                                                    A Strategy for Bold Action
A
nalysis of Key Issues and Concerns
                            This section briefly reviews EPA's work force composition
                          and employment trends. It also discusses the major issues and
                          concerns identified in the employees' responses to the EPA
                          Headquarters Cultural Diversity  Survey.  The conclusions
                          presented rely heavily on findings and lessons learned from
                          benchmarking and studying practices of other organizations in
                          both the public and private sectors. The results from a "market
                          analysis" of diversity training vendors and consultants were
                          useful in helping to clarify some of the training issues involved
                          in managing work force diversity and organizational change.
                          Topics covered include:

                            * Diversity in EPA's Leadership
                            * Recruitment and Affirmative Action
                            * Promotions and Career Advancement
                            * Work Climate and Job Satisfaction
                            * Awards and Recognition
                            * Performance Appraisal
                            * Employee Development and Training
                            * Supervisor and Staff Relations
                            * Relationships between Professional and Support Staffs
                            * Sexual Harassment and Discrimination
                                                                                                 25

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Diversity Challenges for EPA -- November 1992
                                                  A Strategy for Bold Action
EPA Work  Force  Profile
What Do We Do?

  The pie charts below show how many people we have in a
few common EPA occupations:
  Headquarters
                   Attorney
                   (55%)
                                  Scientist
                                   (195%)
                                         Engineer
                                         (55%)
                          All Other
 Agencywide
            Engineer
            (155%)
                                   Scientist
                                   (235%)
  All Other
  (305%)
Attorney
(5.3%)
                 How Educated are We?

                   The next chart shows that EPA has a highly-educated work
                 force:
                                                  Masters
                                                  (22.6%)
                                                         NotaHSGrad(ll.6%)
                     H S G r a d
                     (11.6%)
                                                         Some   College
                                                         (17.0%)
JD/LLB
(6.0%)
                                                                                         Bachelors
                                                                                         (34.1%)
                 Where Do We Work?

                   The chart below shows that many jobs are found in regional
                 offices:
                                                Regional
                                                Employees (48.7%)
                                                             AA Employee
                                                             In DC Metro
                                                             Area (32.6%)
                                                      AA Empbyees
                                                      Outside DC Metro
                                                      Area (18.7%)
                                                      (RTP/LV/Cinn/Labs)

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   Diversity Challenges for EPA - November 1992
                                                                                        A Strategy for Bold Action
    What Programs Do We Work In?

      The chart below shows how many employees are in each National Program Office in Headquarters:
4.UUU
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                           n     i     r     i     i      i     i     i
                     OA   OPPE  OE   OGC   OIG   01A  OARM  OW  OSWER OAR  OPTS  ORD
                                       National Program Office
     How Many People Are We Hiring?

       The chart below shows our hires for the past 5 years:
I
•5
I
   2,500
   2,000   —
   1,500   —
   1,000
    500  —
          FY88
                                 FY89
                                                        FY90

                                                      Fiscal Year
                                                                               FY91
                                                                                                       FY92
                                                                                                  27

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      Diversity Challenges for EPA - November 1992
                                                         A Strategy for Bold Action
      Demographic Composition

        These charts show the diversity of the EPA work force from different perspectives:
     White  Men
     (42.SX)
                                  Minority
                                  Men(7.9X)
                                                 Minority Women
                                                 (I8.9X)
                                           White Women
                                           (30.7X)
                                                                                                                    Disabled (4 OX)
                                                    Percent of Minorities and Women
                                                           (rtodquarun)
     100
      90
      80
      70
I     .
      40
      10
                                      FY87
                           Minority Men
Minority Women
                                                                          White Women
               28

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Diversity Challenges for EPA - November 1992
A Strategy for Bold Action
     I
                                           Average Age of EPA Employees

                                                   by Major Occupation
                                PROG OFC-HQTRS
                                                                                    ERA-WIDE
                                                                          CLERK
                              Over 70% of EPA's Employees are Grade 11 or Above
      50%
      40%
      30%
      20X
       10%
                                                                                     End of Pf 1987
                                                                                     mmmfmmaam
                                                                                     End of FY 1992
                   M
                                 5-10
                                                -12           13-15

                                                         grade range
                                                                          SES/SL
                                                                                        PHS
                                                                                                     WAGE
           29

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    Diversity Challenges for EPA - November 1992
                                                A Strategy for Bold Action
     Key Issues
     Issue  I


       How diverse is EPA's leadership?


     Analysis

     General

       EPA's work force profile is generally at parity with the civilian labor force (CLF), with about 25%
     representation for all minority groups and almost 50% representation of women.  Certain specific
     minority groups like Hispanic and American Indians, however, are underrepresented in EPA and
     women and minorities are not well represented in supervisory, managerial and executive positions
     in EPA.

       In fact, the limited gender, racial and ethnic diversity in EPA's leadership ranks is in stark contrast
     to the diversity reflected in EPA's general work force profile, as shown in the graphs below.
i
                                                   EPA's Workforce

                                                 Compared to the CLF
                       Entry


                      Non-Minority Men
Mid-Managers
                                                                         Executives
CLF
       Non-Minority Women
                                         Minorities
            30

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Diversity Challenges for EPA -- November 1992
                                                                                                   A Strategy for BOM Action
                                         Population Comparison FY '89 to Present
                                                  Feeder Group GS 5-15
                                                                                                              31

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 Diversity Challenges tor EPA - November 1992
A Strategy for Bold Action
                                     Between  1989 and the present,  our professional, non-
                                   managerial work force has grown from 8,214 to 10,522, an
                                   increase of 2,308 persons.

                                     In the same period, our managerial corps has grown from
                                   2,962 to 3,493, including 82 minorities and 276 non-minority
                                   women.  Nevertheless, the proportional representation of
                                   women and minorities has remained stable the last four years.
                                   Recent employment trends are not changing this pattern to any
                                   significant degree, as illustrated below.
      100
       90
       80
       70
       60
       SO
                                          Population Comparison FY '89 to Present

                                                      Management

§
if
       10
                       FY89
      Minority Men
                              Minority Wonton
          32

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Diversity Challenges for EPA - November 1992
                                 A Strategy for Bold Action
Experts and Consultants

  The picture for experts and consultants  also shows a
significant lack of gender and ethnic/racial diversity. Even
though they represent less than 1% of EPA's total work force,
most of them are assigned to Headquarters, where they can
have significant impact on EPA's image and effectiveness,
particularly in our general  outreach efforts.  The  role of
consultants and experts in EPAand their proximity to Agency
top leadership argue for including them in the strategy to
diversify EPA's leadership.

  The composition of EPA's consultants and expert popula-
tion includes:

  - 87% male
  - 92% white
  — 4.5% African-American
  —1.5% Asian/Pacific
  — 0.7% American Indian and Hispanics
  — 0.4% Persons with Disabilities
Conclusion

   EPA should continue to place emphasis on creating and
maintaining a diverse work force. The general goal should be
to achieve parity with the CLF in all hiring categories. What
this analysis suggests, however, is that our highest pfiority
should be to increase diversity in EPA leadership positions,
and in supportingexperts and consultants. The challenge of
diveisbyingEPA' s leadership hasnwchbroaderimplications
than Just simply correcting representational imbalances. It
coold ultimately help shape employees* views of EPA as a
place to work and thus influence whether we truly become an
"employer of choice" for all individuals and groups.
Implementation Brief

  To increase diversity in EPA's leadership and, hopefully,
to begin changing some of the negative perceptions, EPA
should take the following actions:

  For minorities, the use of the current 52% goal (established
  by the Administrator several years ago) has not improved
  representation in leadership ranks. Either a different goal,
  such as parity, or an approach with stronger incentives is
  needed. Also, attention should be paid to the feeder pools
  from which managerial positions are filled internally or
  externally.

  Succession planning and developmental programs like the
  Greater Leadership Opportunity (GLO) and SES Candi-
  dates programs should also be staffed based on what we
  need to do to reach parity in our leadership ranks.

  A variety of accountability practices should be initiated to
  review, evaluate and monitor executive and organizational
  performance in meeting EPA's diversity goals.  Some
  examples of actions taken by organizations that are suc-
  cessfully addressing diversity issues are listed below.

     —inclusion of diversity hi performance evaluation
     goals and ratings

     ~ inclusion of diversity in promotion criteria and
     executive selection decisions

     - inclusion of diversity in management succession
     planning

     -frequentuse of internal audits or attitude surveys

     — inclusion of diversity in determining managers'
     and executives' compensation

     - use of customer satisfaction or complaints data

     — exit interviews

     — special awards and creative forms of recognition
                                                                                                      33

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Diversity Challenges for EPA - November 1992
                                A Strategy for Bold Action
Issue 2

  How much attention is EPA paying to special
recraitiraeait and Affirmative Action programs?


Analysis


Recruitment and Retention

   Employees come to work at EPA for a variety of reasons.
The most prevalent  is "to help  protect the environment."
Other reasons include good positions, good benefits, and job
security. Presumably, to the extent that these expectations are
met, they influence employees' decisions to stay with EPA.
While there is considerable overlap in reasons for joining
EPA, the important reasons do vary across the groups. All
groups had a substantial majority (72% overall) in agreement
with the statement: "Considering everything, I am satisfied
with my job."


Perceptions

   Many minority employees have negative opinions and
perceptions about EPA's special recruitment efforts. To make
recruitment and special programs more effective, these nega-
tive feelings must be changed. The answer lies in improving
program results and providing better communication regard-
ing program initiatives and accomplishments.

   Employees who participated in the focus groups generally
recognized that EPA has made  special efforts to increase
diversity through  special initiatives like the Puerto Rico
Recruitment Program and recruitment at Historically Black
Colleges and Universities.  Despite the general overall posi-
tive perception that Affirmative Action and EEO efforts had
some success in EPA, many minority group respondents doubt
that EPA is committed to these programs and therefore don't
think that they have been very effective.

  The overall perception is that EPA is doing a good job
recruiting women and not as well recruiting minorities.
Informal Procedures and Inequity

  Two-thirds (67%) of the respondents believe that informal
procedures exist at EPA which prevent equitable recruitment.
While a majority of virtually all of the groups think there are
inequities, the groups that have the largest number of respon-
dents with this view are:

  - African-American females (83%)
  — African-American males (82%)
  - Other Minority females (78%)
  - Other Minority males (75%)
  - Those without college degrees (77%),
  — Those in non-supervisory positions (71%)
  - Those in Support or Clerical positions (69%)
  - Those who are disabled (72%).
Conclusion

   EPA should continue its emphasis on Affirmative
and special recruiting efforts bat must give priority attention
to changing the negative perceptions many employees have
about these programs.


Implementation Brief

  To support the goal of increasing diversity in all segments
of EPA's work force and at all levels of responsibility, EPA
needs to continue to use a variety of innovative approaches to
Affirmative Action recruitment and hiring. It is important
that all EPA employees understand the purpose and goals of
these special efforts.

  Our recruitment strategy must continue to focus on attract-
ing talented minorities and womenfor jobs at EPA. Retention
of a high-caliber staff can be greatly enhanced by ensuring that
we pay attention to their development. We need to provide
challenging work assignments and opportunities that further
the development of both technical and managerial compe-
tence. This will help facilitate successful upward movement
within the organization.
        34

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Diversity Challenges for EPA -- November 1992
                                                                  A Strategy for BoW Action
 Issue 3

   Are promotion and career advancement
   opportunities equitable?


 Analysis


 Perceptions

   More than three quarters (77%) of the survey respon-
 dents indicated that they have received at least one promo-
 tion at EPA but only about half (51%) are satisfied with
 their chances for promotions.

     77% Promoted
     in EPA
                               5IX Satisfied with
                               Chances for Promotion
                                Promotion Criteria and Equity

                                   Seventy-nine (79) percent of the respondents say that
                                promotion decisions are not based on' 'established and clear
                                criteria.'' The more education a respondent has, the greater
                                the likelihood that they feel promotion decisions are not
                                based on established and clear criteria. Also, more supervi-
                                sors than non-supervisors think that promotion decisions are
                                not based on established and clear criteria,

                                   Advancement Opportunities for Women.  Fifty-two (52)
                                percent of the respondents agree that women have equal
                                opportunity for advancement within EPA.  Gender differ-
                                ences are evident, with 69% of the men stating that they think
                                women have equal opportunity for advancement within
                                EPA; only 36% of the women who responded agree.

                                   Advancement Opportunities for Minorities. Of the total
                                number of respondents, 54% indicate that they believe that
                                minorities have equal  opportunities for advancement at
                                EPA.  Only  19% of African-American males, 22% of all
                                African-Americans, 27% of Asian/Pacific  Islanders, and
                                32% of the Hispanic respondents agree.

                                   Advancement Opportunities for Older Workers. Overhalf
                                (56%) of the respondents say that workers 50 years of age and
                                older do not have equal opportunities for advancement.

                                   Supervisory and Managerial Positions. Only 52% of the
                                respondents believe that women are treated fairly when it
                                comes to promotions into supervisory positions. Almost
                                three-quarters of the male respondents (72%) think that
                                women are treated fairly, but only a third (33%) of the women
                                agree.
   There appear to be mixed results between the negative
 perceptions women and minorities have about promotions
 and chances for career advancement and their actual
 representation hi grades GM-13 and above in management
 positions. Women have had the largest percentage of pro-
 motions in management positions during the past three
 years, increasing steadily, as shown below:
 Women
 % Promotions

 Average time in grade
 for GM 13-15 promotions
 Minority Men
 % Promotions
FY90    FY9I    FY92

44%     46%     53%

2.8 yrs   2.9 yrs   3.0 yrs
5%
7%
2%
Average time in grade      4 yrs   4.5 yrs  4 yrs
for GM 13-15 promotions
Conclusion

  The promotion and career advancement issue isa complex
one, While opinions and perceptions are quite varied, it
seems clear that we need to increase the representation of
women, minorities and persons with disabilities in positions
above grade 13 and in management positions.


Implementation Brief

  For certain severely underrepresented groups like Hispan-
ics and American Indians, hiring them into EPA's work force
is the first order of business. Internal formal developmental
programs, such as Greater Leader Opportunities (GLO) and
the SES Candidate program, and perhaps succession plan-
ning, can be focused more on expanding opportunities for
underrepresented groups.
                                                                                                   35

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       Diversity Challenges for EPA - November 1992
                                                                    A Strategy for Bold Action
Issue 4

  Are EPA*s work climate and job  satisfaction
positive for all components of the employee popu-
lation?


Influence on Work Climate

  There are several factors that influence the work climate.
The list includes the work itself, position and pay, relation-
ships with peers and supervisors, and how grievances are
resolved.


Perceptions

  A large number of minority  group respondents in the
survey expressed the opinion that the work climate at EPA
Headquarters was not very positive for them. The negative
feelings expressed by minority group respondents tend to
revolve around promotion, pay, the awards process and the
issue of respect.

  Job Satisfaction and Pay. A majority of the respondents
(72%) across the groups are satisfied with their jobs. When
it comes to pay, there is much less satisfaction. Overall, 57%
of die respondents indicate they are satisfied. On the dissent-
ing side are 67% of Native-Americans, 60% of African-
Americans and 50% of Asian/Pacific Islanders.
            Overall
                     Native
                     Americans
African     Asian
Americans   Pacific
         Islander
  Respect from Peers. A strong majority (87%) of all of the respondent
groups think that they are treated with respect by their peers.

  Relationship between Levels of Management. Seventy (70) percent of
survey respondents disagree with the notion that the "lack of cultural
sensitivity" is a source of tension between upper and lower levels of
management.  Seventy-nine (79) percent of the male respondents and
61% of the female respondents disagree. Sixty-one (61) percent of the
African-American, 57% of the Hispanic and 53% of the Asian/Pacific
Islander respondents, however, agree with the notion that lack of cultural
sensitivity is a source of tension.  A majority (53%) of those without
college degrees, 55% of those in support or clerical positions, and 51%
of those in the Wage Grade, GS-1 to GS-5 Pay Grade also agree.

  Relationships within WorkGroups. Seventy-four (74) percent of the
respondents disagree with the statement:' 'Lack of cultural sensitivity is
source of tension among people in my work group."

  Satisfaction with EPA Grievance Procedures.  A total of 57% of the
respondents are satisfied with the procedures for addressing grievances.
Again, there are diverse opinions on this subject, with many minority
group members disagreeing more strongly.

  Relationship betweenManagementandNon-management. Sixty (60)
percent of all respondents disagree with the statement that "lack of
cultural sensitivity is a source of tension between management and non-
management." Seventy percent of the males and 50% of the females
disagree.  Again,  many members of minority groups do agree that a
"lack of cultural sensitivity" is a source of tension, with 70% of the
Hispanic, 68% of the African-American,  58%  of  the Asian/Pacific
Islander, and 50% of the Native-American respondents agreeing. As in
the previous item, a majority of those without college degrees (58%), in
the support or clerical positions (60%), and in the lower pay plans/grades
(54%) also agree.


Best Practices

   In the best practices research, we learned that, when management
becomes more attuned to these concerns, there is increased support for
improved training of managers on valuing diversity and mentoring.
There is also more interest in better employee orientation and support
groups.


Conclusion

  The work climate at EPA Headquarters, particularly job satisfaction,
is positive for most employees and there is a high degree of mutual
respect showninpeerrelationships and supervisor-subordinate relation-
ships,


Implementation Brief

  To build on this generally positive work climate, attention should be
paid to the fact that a large number of minority group respondents believe
that the work climate is not so positive for them.

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Diversity Challenges for EPA - November 1992
                                                          A Strategy for Bold Action
             Issue 5
               Do minorities receive as much in awards as non~rninoritie$?
             Analysis: Awards Data

               Minority employees have consistently received smaller awards than have non-minority
             employees during the past three years. The graph below shows the difference:
         <
                uoo
                                               Average Award Dollar Amount
                                              Minority/Non-Minority Comparison
                                         EPA Headquarters Non-Supervisory Workforce
                                FY90
                                                                                      FY92
               Minority Men
Minority Women
White Women
                    White Men
                Minority women managers have consistently received lower awards than other managers, as
             shown by the graph below.  Note that in FY-92, their awards were nearly 50% lower.

                                                Average Award Dollar Amount
                                              Minority/Non-Minority Comparison
                                            EPA Headquarters Managerial Workforce
            I
                                  FY90
                                                                                       FT92
                Minority Men
 Minority Women
 White Women
                                                                              White Men
                                                                                                      37

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Diversity Challenges for EPA - November 1992
                                  A Strategy for Bold Action
 Perceptions

   Not surprisingly, respondents to the cultural diversity sur-
vey (and survey information from two other studies) reported
problems with fairness of awards.  Despite the fact that 89%
of EPA employees received awards, 57% of survey respon-
dents are not satisfied with the recognition they receive at EPA
for doing a good job. Only about a third of the respondents
think that awards are given to the most deserving employees.
While more minority group  members believe  there is
discrimination in the award process, there is a strong general
impression among many employees that awards are often
determined by favoritism.

   Focus groups and survey responses indicate strong opin-
ions and perceptions that the awards process is fraught with
favoritism  and inequities.  Distribution patterns  showing
 relative sizes of awards per capita by race and gender suggest
 some of the reasons for negative perceptions.


 TQM Work

   Lack of clarity in the reasons for giving cash awards appears
 to be part of the problem. Under the auspices of the Quality
 ImprovementBoard, a Quality Action Team(QAT) conducted
 a review of the Agency's Awards Program. There are several
 significant findings that point to concern that the reasons cash
 awards are given are not clearly understood by employees.

 O Less than 50% believe the Awards  Program recognizes
   outstandingperformanceandonly41%believe supervisors
   use awards to motivate better performance.

Q 73% think that high quality, routine work ("meat and
   potatoes") does not receive appropriate recognition.

 OThe QAT concluded that there is  limited information
   distributed about awards and everyone needs greater under-
   standing about the Awards Program.

Q At the heart of the equity issue is the widespread belief
   among non-supervisory employees that managers and su-
   pervisors receive too many awards of too much money,
   while technician and support staff do not receive their fair
   share of awards.
Implementation Brief

  Making the awardsprocessiairerwillnot be easy in the short
term given that the Awards Program is a highly discretionary
process. The recommendations of the Awards QAT have merit
and should be seriously considered for long-term solution.

  The Task Force particularly endorses the following QAT
recommendations:

Q Senior Agency management should consistently convey the
  message that, while the Agency's priority areas are critical,
  outstanding  performance of day-to-day, less fashionable
  functions are essential to the Agency's success and will be
  rewarded.

Q Managers and supervisors  should be encouraged to give
  employees the opportunity to choose between various types
  of awards.

OA11 EPA supervisory, managerial and executive training
  should include a module on the EPA Awards Program
  describing the types, purposes, uses, and processes of the
  various awards, as well as  creative uses of non-monetary
  awards.

QThe awards  policy and other materials ("call" letters, ar-
  ticles, etc.) should emphasize the need to recognize  to a
  greater extent the  high-quality work of administrative/
  technical/support staff, including their individual achieve-
  ments and also their contributions to group efforts.

QThe awards  policies, written information and all training
  should emphasize the importance of publicizing and openly
  recognizing awardees.

QThe EPA Awards Board should review yearly the use of
  awards by first-tier organizations to ensure reasonable con-
  sistency and equity across the Agency. Glaring discrepan-
  cies should be brought to the  attention of the Deputy
  Administrator.
 Conclusion

   Minority employees receive smaller awards. Thedispariiy
 in awards shown in the graphs probably causes die negative
 perceptions reflected by the survey results. These inequities
 need 1&be corrected.
         38

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Diversity Challenges for EPA - November 1992
                                                                                        A Strategy for Bold Action
Issue 6

  Is the performance appraisal system an effective
one for communicating feedback to employees?


Analysis


Perceptions

  The general reply of most survey respondents is that they
understand how the appraisal process works, but a majority
expressed theview that they do not get useful feedback on their
performance on a regular basis.

  The survey data shows that less than half of the survey
respondents believe that the performance appraisal process is
a fair system. There are differences across the groups, with a
majority of favorable responses coming from some groups. In
general, the perceptions of the fairness of the appraisal
process seem split evenly between those who thinkit'sfair and
those who do not think it's fair.

  Responses related to usefulness of performance evalua-
tions are fairly evenly split, with a small majority (53 %) of the
respondents believing they do not receive useful feedback on
their performance on a regular basis.  Fifty-two (52) percent
to 67% of the respondents from the minority groups think that
they do not receive useful feedback  on their performance,
while white respondents are split 50%/50% on the issue. In
the gender by race analysis, the percentage who believe that
they do not get useful information ranges from 49% for white
females to 58% for African-American males and Other
Minority females.
TQM Work

  The problem appears to be not so much in the mechanics
or the procedural aspects. It relates more to human factors
that deal with issues of quality, clarity and usefulness of
performance feedback. Equity in how the system is applied
is also a big concern. The Performance Management QAT,
under the Human Resources Alignment Project, is address-
ing these issues in the context of TQM.
Conclusion

  Negative perceptions about the fairness and usefulness of
the performance appraisal system reflect its limitations asa
system of communication and a toot for improving perfor-
mance.
Implementation  Brief

  We need to continue to make improvements in the perfor-
mance  management system, focusing on how to make it
compatible with the concepts of quality management and
managing diversity. This is an area that warrants further
study and analysis.
                                                                                                    39

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Diversity Challenges for EPA - November 1992
                                 A Strategy for Bold Action
Issue 7

   Is  EPA's training for career development and
cultural awareness adequate?


Analysis


Perceptions of Opportunities for Training

   Eight-six (86) percent of the survey respondents agree that
they have knowledge about training programs offered at EPA.
Most agree that EPA has a "commitment" to training. While
most of the differences are small, minority respondents tend
to be slightly less positive than white respondents. Those in
supervisory and management (GM, SES) positions are more
positive about this issue (92% agreement) than other respon-
dents.

   Three-quarters (75%) of the respondents agree there are
adequate opportunities to participate in training at EPA.
There are no gender differences and little difference in race,
with the exception of Native-Americans, of whom only 53%
of the 15 respondents agree. There is strong agreement that
age is no barrier to training, with 87% of the respondents in
agreement with this statement.

   For the most part, there are similar strong views that gender
is not a factor in receiving training at EPA, and that being
female is not a barrier. Eighty-eight  (88) percent of the
respondents believe that there are no barriers at EPA for
women to receive training.

   Eighty-four (84) percent of the respondents think there are
no barriers for minorities to receive training at EPA. While
most of the respondents, both male and female, say there are
no barriers, more women (21%) than men (10%) indicate
there  are barriers.  Response differences by race  are also
apparent. White males overwhelmingly (95%) see no barri-
ers, with white females (90%) notfar behind. Atthe other end
of the spectrum are African-American males and females, of
whom 38% of the males and 35% of the females say there are
barriers to minorities receiving training.


Supervisors'  Role in Career Development

   For several years EPA has been giving a high level of
attention to helping employees plan and develop their careers
withEPA. In addition to improving the frequency and quality
of career information, EPA has also sought to strengthen the
role of the supervisors in this process. The EPA management
developmentprogram offers several basic courses for first and
second-line supervisors that focus on giving performance
 evaluation, coaching, counseling and developing employees.
 While employees overall tend to rate EPA supervisors very
 favorably in their general dealings with employees, their
 opinions of supervisors' interest in their employees' career
 development are not high.

   Only 55% of the respondents overall say that their super-
 visor is interested in their career development and advance-
 ment.   As  a group, the Native-Americans are the most
 negative, with only 27% of the respondents believing that
 their supervisors are interested in their careers.

   The emphasis EPA places on career development is very
 much a part of developing effective work teams, with each
 member fully competent and confident in their ability to
 contribute to getting EPA's work done. The supervisor has a
 critically important part to play in this effort. More and more
 organizations are beginning to realize that other support
 systems like mentoring also play an important part.


 Mentoring

   The results from the focus groups suggest that mentoring
 is an important form of career development that happens too
 infrequently, particularly for minority individuals.

   In several organizations studied, mentoring is a crucial
 element in the overall career development scheme. It is aimed
 both at improving staff retention and grooming and develop-
 ing staff for higher levels of responsibility.  These organiza-
 tions believe that mentoring also helps organizations deal
 with diversity.  The two scenarios described below are typical
 of lessons we learned from some of the leading-edge organi-
 zations:

Q Through mentoring, experienced professionals and man-
   agers can help employees prepare for greater responsibili-
   ties. Mentors can also help with the emotional adjustments
   and learning that accompany additional levels of respon-
   sibility.

O Interviews with managers and human resources profes-
   sionals disclosed the existence of informal mentoring
   networks for some employees in the organization. Formal-
   izing mentoring can make it available to more employees.


 Diversity Awareness Training

    In our survey of organizations we learned that diversity
 awareness training is a major tool for addressing diversity.
 We were cautioned repeatedly, however,  not to rely on
 training as  the sole vehicle driving the cultural diversity
 change effort.
         40

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Diversity Challenges for EPA - November 1992
                                                      A Strategy for Bold Action
  Most survey respondents (56%) said
that EPA training is not designed with
concernfor diverse cultural backgrounds.
A majority of those in the lowest pay
grades and in the support or clerical
positions, however, think thatEP Attain-
ing does have concern for cultural diver-
sity.

  There are opportunities to incorporate
a diversity component or perspective into
most training programs and activities.
Each element of the training network has
a responsibility to ensure that cultural
diversity training is  institutionalized
within training programs and philoso-
phy.   Some training  programs which
should have diversity modules are nego-
tiations, teambuilding, TQM, and orien-
tation programs. In responding to these
perceptions, EPA is presented with sev-
eral challenges:  to improve training for
career development; to design training
programs to provide awareness and skills
for relating to the diverse cultural back-
grounds of EPA employees; and to de-
velop a strategy that promotes mentoring
networks for interested employees.

   To provide adequate training for ca-
reer development and to respond fully to
work force needs for cultural awareness
skills and competencies,  EPA needs a
comprehensive diversity trainingand edu-
cation strategy.   To  be effective, the
diversity training strategy must have:

 Q consistent and committed leadership;

 Q institutionalized mechanisms for pro-
   moting an understanding of the value
   of diversity, and tools for effectively
   implementing that understanding in
   the workplace;

Q examination of Agency policies, pro-
   cedures, programs, and  activities to
   remove artificial barriers;

 Qlong-term commitmentto supportpro-
   grams and policies that promote sus-
  tained organizational awareness of di-
  versity issues.
   A comprehensive diversity training
strategy is inherent in a strategic ap-
proach to managing diversity and a good
supervisor/staff relationship is one of the
keys to success.
Conclusion

   In general, most respondents believe
that EPA has a commitment to  staff
training and development. Most agree
flat there are adespate opportunities to
participate In EPA training programs
without regard to age, gender or race;
however, over half of the respondents
prepared for higher-level positions in
BPA,  Also, over half exjpress a desire
that EPA training programs be made
mwe sensitive to the diverse eutlaral
backgrounds of EPA employees.

   In addition 10 training, four focus
become an important part of career de-
velopment.


Implementation Brief

   Specific recommendations include:

Q Offer Cultural Diversity Awareness
   Seminars via the EPA Institute for
   general audiences.

Q Include a module on cultural diversity
   in EPA supervisory and managerial
   development courses.

Q Create an overview course on Manag-
   ing Diversity for Environmental Ex-
   cellence to be offered by the EPA
   Institute.

Q Provide diversity  training for EPA
   Institute facilitators and Quality Ac-
   tion Teams.

Q Incorporate diversity training into all
   new employee orientation programs.

Q Make diversity training a key module
   in any core curriculum training pro-
   gram.
  This process has started. The Institute
and the Management Development Pro-
gram have begun considering how to
incorporate diversity training into their
programs.

  The objective of culturaldiversity train-
ing is to develop an appreciation and an
ability to effectively utilize the richness
found in the diversitywhich exists within
the entire work force.  To do that, the
training strategy proposes that training
should  be as inclusive  as  possible.
Diversity training should:

O Explain the significance of the issue
  within the context of accomplishing
  the Agency's mission;

Q Highlight the importance of valuing
  differences;

Q Provide examples of differences;

Q Helpparticipants understand their own
  values, biases, stereotypes, and preju-
  dices; and,

Q Provide practical guidance on how to
  apply the new  insights to the work
  place.

  This approach recognizes that there is
not a one-time training activity  which
might accomplish all  of the elements
above. Rather, training should be seen as
a catalyst to create a process which af-
firms diversity.
                                                                                                        41

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Diversity Challenges for EPA - November 1992
                                                                       A Strategy for Bold Action
Issue 8

  Are  supervisor/staff relation-
ships positive and employees em-
powered?


Analysis


Perceptions

  In the EPA survey, 66% of respon-
dents said their supervisors  generally
deal fairly with everyone.   An  even
larger majority (73%) of the respondents
said they can discuss sensitive issues
such as racism,  sexism and  bias with
their supervisors. Finally, 78% said that
their supervisor is doing a good job in
working with multicultural staffs. (Sixty
[60] percent of EPA's Native-Ameri-
cans disagreed.)

  In the Hudsonlnstitute -Towers Perrin
survey for Workforce 2000,55% of the
635 companies cited supervisors' abili-
ties to motivate and lead diverse groups
of employees as their principal concern.

  In the Hay Employee Attitude Study,
in response to the  specific  question,
"Does your supervisor treat you with
respect?", 62% of professional, techni-
cal and clerical employees responded
favorably.
                  TQM

                    Employee empowerment is essential
                  to successful implementation of total
                  quality management. Companies which
                  have improved operations by embracing
                  the principles of TQM have transferred
                  considerable authority from hierarchical
                  management  structures to individual
                  workers and teams of workers.  Such
                  organizations have enabled employees
                  with high motivation and good skills to
                  make the organizations more produc-
                  tive, and have been recognized for doing
                  so.  Minorities and women have had
                  opportunities for making a great contri-
                  bution because of TQM.

                    TQM is difficult, perhaps impossible
                  without good supervisor/staff relation-
                  ships. EPA employees seem to indicate
                  a higher level of trust and confidence in
                  their supervisors than do employees of
                  other agencies and those in the private
                  sector.  This is a resource for EPA in
                  dealing with issues of diversity, team-
                  work and total quality management.

                    Good supervisor/staff relations are an
                  advantage for EPA in treating diversity
                  as a management priority. EPA employ-
                  ees rate their supervisors highly on abil-
                  ity to be fair and work with diverse
                  employees, compared to other Federal
                  and private sector employees.

                    In addition to the relationship be-
                  tween supervisor and staff, how the dif-
                  ferent staffs relate to each other also
                  influences the work climate. The focus
                  groups gave some clues on what to probe
                  hi the employee survey. Responses indi-
                  cated considerable tension in the rela-
                  tionships between professional and sup-
                  port staffs.
Conclusion
ees are happy with then* supervisors and
rate them as doing agood job in dealing
with employees. Employee responses to
this question aad other survey questions
th^supemsor-subordimterelationsh^
are generaUy good hi EPA
ters.
Implementation Brief

  Our goal should be even greater con-
sensus that supervisors are sensitive to
individual and cultural differences, par-
ticularly in relationships with adminis-
trative support staffs.  Also, EPA should
work hard to capitalize on this strength in
order to further empower employees and
better integrate TQMand diversity. This
should be emphasized hi briefings, semi-
nars, workshops,  and various training
programs for supervisors and managers.
      EPA
Private Sector

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Diversity Challenges for EPA ~ November 1992
                                                    A Strategy for Bold Action
Issue 9

  What are relationships between professional and
support staffs like?


Analysis

Respect

   Seventy-two (72) percent of respondents say the profes-
sional staff treats support staff with respect, but only 58% of
support staff agree.  There is generally high agreement that
professional and support staff treat each other with respect.
                  Conclusion

                    Although there is a need to clarity totes and expectations
                  for some support staffs* cultural sensitivity & a more sigpfjj-
                  cant issue for most.
                  Implementation Brief

                    Training and developmental experiences related to con-
                  flict resolution, cross-cultural  communications, and team
                  effectiveness could help.  Resolving these issues can have a
                  positive effect on general work climate, morale and produc-
                  tivity.
 Roles

    A slight majority of respondents
 believe that the roles and responsi-
 bilities of support staff are not well
 defined, but 75% of those in grades
 GS-1 to GS-5 say their roles are well
 defined. More respondents (64%) say
 the roles and responsibilities of pro-
 fessional staff are clearly defined.


 Lack of Cultural Sensitivity

   A majority  of respondents who
 perceive conflict between the profes-
 sional and support staffs say that con-
 flict arises from "a lack of cultural
 sensitivity."   Sixty-two percent of
 administrative  support respondents
 believe "lack of cultural sensitivity"
 causes tension between professional
 and support staffs.
     Believe that professional staff treats support staff with respect
100
80
 10
                                                     Professional
                                                     Staff
                                             Support
                                             Staff
                                                                                                      43

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Diversity Challenges for EPA - November 1992
                                   A Strategy for Bold Action
Issue 10

   Is there sexual harassment and discrimination at
EPA?


Analysis


Sexual Harassment

   Fifteen percent (15%) of survey respondents answered that
they have experienced sexual harassment at EPA and 3 9% of
all respondents perceive that it is a problem. Thirty-three
percent (33%) of survey respondents answered that they have
experienced some form of discrimination at EPA.

   The issue of sexual harassment did not come up often in the
focus groups and the assumption preceding the survey was
that perhaps sexual harassment was not a serious problem at
EPA Headquarters. A large number of survey respondents
(61%) expressed general agreement with that assumption;
however, 22% of the females and 6% of the males reported
incidents they considered to be sexual harassment. Only 9%
agree that sexual harassment is a "serious" or "very serious"
problem. The finding of 30% for the "somewhat serious"
category was not anticipated and the complaint system gave
no real  clue on what to expect in terms of the number of
instances when sexual harassment occurs.

   Thirty-nine (39) percent of all respondents think that
sexual harassment is a "somewhat serious," "serious" or "very
serious" problem at EPA.  The highest percentages of sexual
harassment are reported by white females (28%) and Other
Minority females (23%). The rates for the remaining groups
range from a low of 5% for African-American males to 18%
for disabled respondents.  In its 1988 study of sexual harass-
ment in the Federal government, the Merit Systems Protec-
tion Board reported that 33% of female employees and 15%
of male employees in EPA indicated they had been sexually
harassed on the job. In terms of actual complaints filed, EPA
has had two formal EEO complaints based on sexual harass-
ment in the past three years. Despite the small number of
formal complaints, many EPA employees  believe sexual
harassment is a problem at EPA.
  The responses by gender are somewhat differentfrom those
by race and ethnic groups. Thirty (30) percent of the men and
37% of the women reported  experiencing some form of
discrimination at EPA. The most frequent types of discrimi-
nation reported by men were race, gender, and age, in that
order; these same types were most frequently experienced by
women, but in different order — gender, race, and age.

  There were 77 formal EEO complaints filed in FY1990,
107 in FY1991 and 116 in FY1992, more thana50% increase
over FY 1990.  In response to the survey, 73% of Native-
Americans and 54%of African-American males saidthey had
been discriminated against.
Conclusion

  Tiie Task Force can see no acceptable middle ground on
issues of sexual harassment and discrimination; they must be
eliminated entirely fromthe EPA workplace, Notonfydothey
create an unwarranted hostile environment lor EPA employ-
ees, but the problem behavior associated with them is costly
and poses & hindrance to EP A's ability to achieve its quality
ami continuous improvement goals, and ultimately, our envi-
ronmental mission.
Implementation Brief

  Awareness about sexual harassment throughout EPA has
been heightened in the past year.  The Administrator has
issued a policy statement, posters have been printed and
widely distributed in FY-92, and a number of headquarters
offices have conducted training on prevention of sexual
harassment in the workplace. In addition, the Offices of Civil
Rights and Human Resources Management are developing a
specific EPA sexual harassment training program, which
should be on-line by February 1993.
 Discrimination

  Discrimination based on race, national origin, gender, and
age were the most frequent types reported. Sixty (60) percent
of the Black respondents, 50 percent of the Hispanic respon-
dents, and 42 percent of the Asian/Pacific American respon-
dents indicated that racial discrimination in EPA is a serious
to very serious problem.
        44

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Diversify Challenges for EPA - November 1992
                                                                                        A Strategy for Bold Action
        \
              A Context for Viewing the Issues -- Managing pjyer
              Goes Beyond the Concern for Resolving
  Most of the organizations surveyed in
the best practices study made a distinc-
tion  between managing  diversity and
affirmative action. None  spoke directly
of discrimination as beingthe motivation
for starting their cultural diversity initia-
tives. They view affirmative action as a
legal mandate to redress discriminatory
practices. Managing diversity transcends
these legal issues and focuses on organi-
zational health and viability.

   Cultural diversity is viewed as a re-
source utilization issue,  which values
and develops individual capabilities and
ensures that the organization provides
the resources, procedures and leadership
to support this effort. Finally, affirma-
tive action and diversity are integral parts
of the work force planning and utiliza-
tion strategies of successful organiza-
tions.  Their approaches include exten-
sive outreach and recruitment, cultural
awareness training, accelerated and re-
designed career development programs,
and initiatives to create a work environ-
ment in which employees from a wide
range of backgrounds will feel comfort-
able and welcome.
                                                          EPA has adopted this comprehensive
                                                        approach as well. The results of affirma-
                                                        tive action, better recruitment, andbetter
                                                        promotionpractices areaworkforcethat
                                                        is more diverse in all respects. Eliminat-
                                                        ing discrimination in all of its forms is
                                                        mandatory and stands on its own. Man-
                                                        aging diversity concentrates on how to
                                                        make the best use of workforce diversity.

                                                          The primary reason for addressing
                                                        diversity as a management priority is to
                                                        strengthen EPA's capacity to  accom-
                                                        plish our mission and program goals.
                                                        Addressing employees' issues and con-
                                                        cerns and getting their help in  finding
                                                        solutions is bedrock to EPA's approach
                                                        to diversity. This report completes the
                                                        first step, gathering information and con-
                                                        ducting a baseline assessment. Thecriti-
                                                        cal next steps are to:

                                                        Q develop strategies;

                                                        G act on what we have learned, in order
                                                        to make EPA an employer of choice.
                                         Note

                                           Additional detailed information re-
                                         garding data from the EPA Headquar-
                                         ters employee survey is available in the
                                         WESTAT Cultural Diversity Report.
                                                                                                   45

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Diversity Challenges for EPA - November 1952                                                                A Strategy for Bold Action

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   Diversity Challenges for EPA - November 1992
                                                                                            A Strategy for Bold Action
    Strategy and  Implementation
     Thischapter addresses howto implement the needed changes
   to begin building the institutional capacity that will enable
   EPA to improve and capitalize on work force diversity. The
   implementation strategy covers three specific categories of
   actions:

     1. key leadership actions which set the tone and sustain
       momentum to achieve our desired goals;

     2. a communication and training strategy to get the message
     out to everyone and to gain involvement and ownership and
     skills needed to successfully address diversity training,
     issues and concerns; and

     3. recommendations on how to modify the infrastructure to
     support and advance changes needed to achieve the Agency's
     diversity goals on a continuing basis.
1  Key Leadership Actions
^^•J

      To ensure that diversity is not viewed as "just another
   program," it is important to set the right tone and provide a
   proper framework for the changes required to create a culture
   that values diversity. This is a role for EPA's top leadership.
   The first step was already taken when Deputy Administrator
   Habicht established the Cultural Diversity Task Force and
   commissioned the Cultural Diversity Study.

      In creating the diversity initiative, the Deputy Administra-
   tor established diversity as a management priority and linked
   it to the Agency's strategic planning and total quality efforts.
   This report, which contains a baseline assessment of diversity
   issues and concerns in EPA, is another important step in setting
   the stage for the long-term changes that are needed. EPA's top
   leadership must continue to take an active and visible role in
   promoting diversity and the benefits it offers to EPA.
  Setting the Stage

  To further setthe stage for the changes diversity requires, the
following actions should be taken as soon as possible. This
stage-setting will complete the first phase of leadership actions
that are necessary for success. The Administrator or Deputy
Administrator should:

  (1) Issue a strong management message on diversity to
promulgate EPA's diversity philosophy and outline the key
features of EPA's diversity strategy.

  (2) Designate a Strategic Management Leadership Council
(SMLC) charged with overseeing  and directing a drive to
consolidate and integrate change  initiatives like pollution
prevention, strategic planning, total quality management and
managing diversity. This step initiates the full-scale imple-
mentation of EPA's diversity strategy.  The current Deputy
Leadership group can appropriately assume this role.

  (3) Sponsor a senior management forum focusing on Cul-
tural Diversity Challenges for EPA and include diversity
leadership training for SMLC and other EPA executives.
These are important steps to signify a systematic process of
developing awareness which will include focused communica-
tion and a comprehensive approach to diversity education and
training.
                                                                                                       47

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Diversity Challenges for EPA - November 1992
                              A Strategy for Bold Action
  Long Term Leadership Actions

  Top management must continue to show commitment to
change. Providing training that promotes diversity and devel-
ops skills needed to make desiredchanges must beatop priority.
The leadership needs to make sure that there are incentives,
accountability,  and reinforcement for behaviors and perfor-
mance that match organizational values and produce desired
results.
  A recent General Accounting Office (GAO) study on
organizational culture summarized techniques used by nine
well-known companies to perpetuate or change beliefs and
values. The excerpt below summarizes these techniques and
the degree of importance attached to each. The Task Force
believes these leadership actions are quite applicable to what
is needed to make our diversity efforts successful.
                   Importance  of Techniques for Perpetuating
                   or Changing Organizational Culture
                    Degree of
                    Importance    Technique
                    Very great   Display top management commitment and support for values and
                    beliefs.
                               Train employees to convey and develop skills related to values and
                               beliefs.

                    Great       Develop a statement of values and beliefs.

                               Communicate values and beliefs to employees.

                               Use a management style compatible with values and beliefs.

                               Offer rewards, incentives, and promotions to encourage behavior
                               compatible with values and beliefs.

                               Convey and support values and beliefs at organizational gatherings.

                               Make the organization's structure compatible with values and beliefs.

                               Set up systems, procedures, and processes compatible with values
                               and beliefs.

                    Moderate    Replace or change responsibilities of employees who do not support
                               desired values and beliefs.

                               Use stories, legends, or myths to convey values and beliefs.

                               Make heroes or heroines of exemplars of values and beliefs.

                    Some       Recruit employees who possess or will readily accept values and
                               beliefs.

                               Use slogans to symbolize values and beliefs.

                               Assign a manager orgroup primary responsibility for effortsto change
                               or perpetuate culture.
        48

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Diversity Challenges for EPA - November 1992
                                                                                     A Strategy for Bold Action
       Communication and Training

    What we learned from studying and benchmarking the
bestpractices of other organizations can be very helpful to EPA.

    Organizations that are recognized as leaders in diversity
have incorporated a comprehensive communications strategy
as part of their diversity effort. They are careful to use every
opportunity to advance the concepts of diversity in the work-
place and many meticulously follow the script presented on the
panel below and employ a comprehensive approach to diversity
education and training.
                                            The next order of business for EPA is to get the results of
                                        this study out to EPA employees and managers. The plan on
                                        the next page describes the approach the Cultural Diversity
                                        Task Force will be using during the next three to six months.
                                        The critical role that top leadershipplays in the communication
                                        process cannot be overemphasized.  In the later discussion of
                                        roles and responsibilities, it is also clear thatthere are other key
                                        players who are critical links in the communication process.
       W-
       V?
       s,
       I
       1%;
           ^
           s
           a
          ^
                                          ag&pps to lielp lay pt)iuinJ?'','"''* V'":"	 "*<;,-;'$'-  ~   ;..  vftir-j1,,, ,^5^ .•;• '^vfi
                                                        1   T   M ! f  *!' t * * * ' ^
.^lyl^S'ilj t^Lztiif^.^Ji*,, k^ui.^;€M^^^iXkia^^^^'^ii^
         IgSjflKOFT^T^ :• vp JcrPc -w;- fr;w: :F:' •** ^ ^'m- K; •
                                                                                                49

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Diversity Challenge!) for EPA - November 1992
                                                     A Strategy for Bold Action
Diversity Training

  Below is a matrix which outlines a preferred approach for providing
cultural diversity training for all employees.
Training Need

  1) Managers and staff have a limited
  understanding of cultural differences.
  2) Cultural differences have been cited
  by staff as an area of conflict.
  3) Specific (racism, sexism, etc.) con-
  flicts between and among culturally
  different groups hare been identified.
  4) Managers/supervisors have either
  self-identified a need or senior man-
  agement has identified a deficiency in
  the manner in which the managers/
  supervisors develop an effective work-
  ing environment for employees of all
  cultural groups.

  5) Executive staff has limited view of
  impact ofculturaldifferencesonworic-
  foree dynamics.
Target Audience

  1) Alt EPA employees.
  2) Site specific to an organizational
  unit.  Should include all staff and
  managers at the targeted unit.

  3) Target audience: should be identi-
  4) All EPA managers and supervisors.
  S) Ml Executive staff involveditt plan-
  ning and developing policy which af-
  fects the environmeat of the work
  force, such as organizational develop-
  ment, Jolt design, personnel policies,
  communication practices^ etc.
Training  Resources

  1) Basic Cultural IWversity Awarefiess
  Training, EPA Institute,
  Tuning Officer, "Vendor Catalogue11**
  are all sources,

  2) Use "Diversity Training Checklist"*
  to identify needs; consult Vendor Cata-
  logue and/or Training Officer.

  3) This training should be4eveloped to
  meet the needs of the audience. Need to
  work closely with training officer afier
  carefiil selection using "Checklist.0

  4) Using "Checklist," interviewpotential
  vendors, and/or consult with EPA Insti-
  tute, Executive Resources, Training Of-
  ficer to identify established courses.
  5) Consult withExecQtive Resources Staff.
         50

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Diversity Challenges for EPA - November 1992
                                                                                         A Strategy for Bold Action
Checklist

  The next four pages are a checklist for those who will be making decisions on diversity training for their organizations.
                   Diversity Training Checklist
Pagel
                   1.  Determine why you want to have diversity training.

                     Training should not simply create or heighten awareness. Instead, it should signal
                   the beginning of positive cultural change within your organization. Training will
                   create the expectation that organizational policies and practices will be more support-
                   ive of those who do not feel totally enfranchised within the existing organizational
                   structure and culture. Problems will ensue if you raise expectations without providing
                   the means to  realize them.  A commitment to training should, therefore,  be a
                   commitment to positive organizational change.


                   2.   Gain support from top management.

                     Any process that may result in organizational change must have the support of top
                   management.  As a practical matter also, few managers will take the initiative on
                   diversity without an indication that top management cares about and is willing to
                   reward such activities, particularly in light of the competing priorities which we all
                   face.
                   3.   Carefully select a trainer.

                     The Training Workgroup previewed 23 diversity vendors over a three-day period.
                   We learned that there are many excellent trainers available who use a variety of
                   techniques and materials. Your organizational culture, the intended audience for the
                   training, and the nature of the issues relatedtodiversitywhichyour organization wants
                   to address will determine the training approaches which are most effective for you.
                   Also, different people feel more comfortable with different training techniques.  This
                   point was driven home during our three-day market analysis.  Some work group
                   members favored trainers who used an analytical or historical teaching approach,
                   while others preferred trainers who used a highly interactive or experiential approach.
                                                                                                    51

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Diversity Challenges for EPA - November 1992
         A Strategy for Bold Action
                  Diversity Training Checklist
Page 2
                     The following are questions which we asked each of the 23 vendors to address, in
                  order for us to gain a better understanding of their philosophy, methodology, and
                  capability.  You may find them useful in your own selection process.

                     Describe your company's experience in diversity training, including the kinds of
                     groups and organizations for whom training was provided.

                     Define diversity and explain why this is an issue deserving of special attention.

                     Describe howyou deal with affirmative action audits relationship to diversity inyour
                     training.

                     How do you deal with racism and sexism in your training?

                     Describe your training techniques and materials.

                     What do you seek to achieve through your training?

                     What are benchmarks for determining that an organization has improved relative
                     to diversity issues?

                     What kind of follow-up is required to sustain results?

                     The Task Force's Work Group found that many trainers work with one another on
                  a variety of projects and conferences. One tack you may want to consider is using several
                  vendors to get the blend of expertise which will best meet your organizational needs.
        52

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PiversHy OudleHges for EPA - November 1992	                        A Strategy for Bold Action
            Diversity Training Checklist                                       Page 3


            4.   Develop a training strategy.

              The following are important components or concerns which should be addressed in your training
            strategy.


            Establish goals.

              Development of?, training strategy is perhaps the most important thing which you need to do prior to
            initiating training. Your strategy should clearly state your goals, e.g., what you hope to accomplish by
            initiating training. The goals should be responsive to actual organizational issues and concerns and the
            training should be designed to address these concerns. They should also be realistic. Set goals that your
            organization is likely to be able to achieve with this initial effort. To ensure this, a needs assessment is
            a critical part of your strategy.


            Decide who will be trained.

              You need to decide who will be trained.  It is important that managers be a key component of those
            trained.  Managers must understand the issues and concerns if you want their support for appropriate
            follow-up activities. In most instances, it will not be feasible to train everyone.  You may, therefore, want
            to consider initiating a pilot effort in one part of your organization, or pull together a cross section of people
            from various components of your organization to address common problems and concerns.  Any work
            groups that are created as the result of the training should include a mix of employees and managers. This
            will ensure that various viewpoints are considered early on so there will be a greater likelihood that real
            solutions can result if both management and employees have been part of the problem resolution process.


            Determine the training methodology.

              Onceyou determine who will be trained, discuss training approaches with the trainer you have selected.
            The training approach may vary, depending on the audience. As noted earlier, some groups prefer a more
            analytical, historical approach, while others find a highly interactive approach more satisfying. A good
            trainer will share these sensitivities and will be flexible in designing the best training experience for your
            group.


            Plan work group activity as a part of the training process.

              Agoodtrainingexperience will provideyour organization with tools to begin to address diversity issues
            on your own.  Those tools should be utilized by work groups, following the training, to look at your
            organization's policies and practices as they relate to specific diversity issues.
                                                                                                     53

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Diversity Challenges for EPA -- November 1992                                                       A Strategy for Bold Action
            Diversity Training Checklist                                        Page 4
            Effectively communicate the training opportunity.

              The training opportunity should be communicated to managers and employees in such a way that they
            understand the potential personal and organizational benefits. Though the emphasis of your training will
            probably be on issues related to race, ethnicity, gender, and perhaps disability, there are other diversity
            issues which may also be important to your organization. If there are other important concerns, address
            them in the actual training and make it clear in communicating the training opportunity that it is indeed
            for everyone.


            Integrate this training with other Agency initiatives, e.g. TQM.

              Diversity training should not be considered an add-on to normal organizational activity. Nor should
            it be considered an end in itself. Failure to appropriately understand and effectively utilize diversity offers
            enormous potential for creating critical barriers to successful communication, negotiation, and teamwork.
            The Agency's efforts to realize its mission require creative and effective partnerships from the global to
            the local levels, with an increased emphasis on integrated solutions to environmental problems. The issues
            associated with diversity impact directly on our ability to effectively develop partnerships and should,
            therefore, be integrated into every facet of our program activity. The skill required to successfully utilize
            work force diversity is also consistent with the Agency's emphasis on the new management skills
            of.motivating, empowering, facilitating, and teambuilding.

              There are many opportunities to effectively integrate diversity training with other initiatives.  As noted
            earlier, the tools of the TQM process can be used to implement activities that develop as an offshoot of
            diversity training.  For instance, an organization may choose to examine its recruitment process to
            determine if it is effectively reaching all segments of the population, and develop strategies to  eliminate
            any barriers which might be identified.

              Also, consider using existing vehicles, e.g., local human resource councils, special emphasis groups,
            other employee committees, management councils, etc., to include in the training and to sponsor work
            groups that result from the training.


            Do a follow-up assessment.

              The follow-up assessment is the last critical part of your training strategy. Your needs assessment will
            highlight issues of concern. Your follow-up assessment will indicate whether there has been any change
            as the result of the training and work group activity and, therefore, whether work remains to be done to
            create a more positive work environment.  It will, therefore, help you identify successes and  provide a
            framework for further needed activity.
        54

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    Diversity Challenges for EPA - November 1992
                                                                                                A Strategy for Bold Action
TJ Infrastructure

       There are five categories of infrastructure issues that must
     be addressed to ensure the success of the diversity initiative in
     EPA:

       roles and responsibilities;

       policies, practices and systems changes;

       resources;

       incentives and reinforcements; and

       accountability.


     Roles and Responsibilities

         Several of the organizations surveyed have provided for
     a senior executive and staffto carry out the diversity initiative.
     These  organizations have also ensured that the diversity
     manager has the necessary support and endorsement of the
     Chief Executive Office or Chief Operating Officer. Though
     the roles of the diversity managers vary, their focus is on
     developing and directing a strategy to launch and nurture the
     organization's diversity initiative.

         The TaskForce recognizes thatEPA has a much different
     culture from many of the organizations included in the survey
     and it may be necessary for the appropriate structure for EPA
     to evolve over time. Our recommendation is that EPA should
     move toward a more focused alignment for diversity than we
     have had on other change initiatives undertaken in the past.
     We recommend that the Strategic Management Leadership
     Council be made the focal point and function as an executive
     body responsible for consolidating and integrating the EPA
     management change agenda.

         The  Deputy Administrator should appoint  a Diversity
     Management Coordinator to work with the SMLC and the
     Cultural Diversity Task force to begin effecting leadership
     transition.  The Diversity Management Coordinator's role
     should be a continuing one to ensure that top Agency leaders
     are kept informed and connected to how EPA is achieving its
     diversity  goals.  Each SMLC member should take personal
     responsibility for leading the diversity  intuitive in his/her
     organization.
    Ultimately, the role and responsibilities of each supervi-
sor, manager, and executive will be changed to reflect per-
sonal accountability for the success of diversity in the work
units they lead. The staff offices for Civil Rights and Human
Resources Management have inherent responsibilities for
advising, assisting, and supporting program offices in man-
aging "people" issues, and managing diversity is an integral
part of this responsibility.  OCR and OHRM have already
executed a partnership agreement that should be very helpful
to advancing the diversity agenda.


Policies, Practices and System Changes

    There are three  basic policy concerns  that must be
addressed.  The first is the need to clarify the connection
between diversity and other issues like Affirmative Action,
TQM, strategic planning and human resources management
in general. There is also the need to provide the "vision" for
EPA's work force.   The issuance  of the EPA Diversity
Philosophy Statement responds to these needs.  The other
significant change in policy direction is the one calling for a
"parity" approach to filling managerial positions to increase
diversity in EPA's leadership ranks. Finally, there is the need
to begin dealing with changing many of the negative opinions
and perceived inequities related to recruitment, promotions,
awards and recognition, and performance appraisals. Again,
the leadership of the SMLC can provide the framework and
forum for deliberating and deciding these issues.


Resources

    Necessary funding for diversity varies from organization
to organization. In most cases, the initiative has the necessary
funds to provide for contractor support, required travel refer-
ence materials (books, videos, etc.) and training programs.

    The resources issue for EPA should be viewed  in the
context of the cost of doing business and as required to give
EPA the organizational strength and capacity to effectively
achieve its mission. A level of support at least similar to that
given to implementing TQM will be required for diversity.
There are three basic areas of need that the Task Force has
identified so far.  One area is staff support, advice and
consultation to the SMLC. Another area relates to special
studies and issue analyses stimulated by the survey results.
Finally, building awareness and skills for managing diversity
will require a serious commitment of resources.
                                                                                                           55

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Diversity Challenges for EPA - November 1992
                                   A Strategy for Bold Action
 Incentives and Reinforcements

   EPA should be as resourceful as possible in providing the
 necessary incentives and reinforcements to make diversity
 successful.  The following ideas and suggestions should be
 considered as ways we can further strengthen the Agency's
 incentive portfolio in support of diversity:

   Improve use of existing prestigious awards, like SES bo-
   nuses, A. J. Barnes HumanResources Award, medal awards,
   and Lee M. Thomas Managerial Excellence Award. These
   awards can be used to recognize outstanding performance in
   creating a culture for diversity and special contributions to
   achieving diversity goals and objectives.

   Create new awards for effective and successful team efforts
   and an EPA "ZAPP" Award for supervisors who are espe-
   cially effective in inspiring, motivating and  empowering
   their employees.

   Develop and issue a handbookfor supervisors and managers
   to describe various  human resources management innova-
   tions and how they can be used to enhance morale, quality,
   productiviity and mission. Supplement the handbook with
   tailored briefings as necessary.

   Institutionalize regular senior management conferences on
   major management priorities, managing change, and lead-
   ership development.

   Include diversity in performance evaluation goals and rat-
   ing, promotion criteria,  mangement succession planning,
   and exit interiviews.
Accountability

    Ultimately, EPA's success with diversity will depend on
how we define  success, evaluate results and hold ourselves
accountable. In a real sense, that is what this organizational
assessment of diversity  in EPA is all about.   The  study
establishes the baseline of information on what our employees
perceive as some of the real issues and problems that should be
corrected.  We can now make choices and set priorities.
Examples of individual and organizational accountability are
discussed in terms of challenges facing EPA, particularly with
respect to what we need to do to increase diversity in our
leadership ranks. The issue analyses contain implementation
briefs discussing what EPA needs to do to correct some of the
other situations identified throughout this assessment.  The
accountability process can be enhanced by all of the leadership
actions suggested in this strategy discussion. There is a special
role that education and training can play.  The Task Force
recommends that EPA's top leadership set the example by
sponsoring a senior management forum on Diversity Chal-
lenges Facing EPA and include diversity leadership training
for SMLC and other EPA executives. This is an important step
to signifya systematic process to develop awareness, which will
include a focused communication plan and a diversity educa-
tion and training strategy.
        56

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Diversity Challenges for EPA - November 1992
                                                                                          A Strategy for Bold Action
Bibliography
  The research for this report started with a literature search
by the Work group on Literature and Best Practices Research.
That work group collaborated with EPA Headquarters Li-
brary to produce a bibliography, Selected Management Ar-
ticles onManagingaDiverse Workforce, issued in Septem-
ber 1990.  An updated edition, Managing Diversity, was
issued in June, 1992.

  During the course of the Cultural Diversity Study, the Task
Force encountered  a plethora of data and information on
cultural diversity and related topics.  The never ending
challenge was to sort out the most relevant and useful sources
to prepare this report.  The sources we relied  on most
consistently fall into four basic categories described below.
   Category I - The reports covering the findings of the Task
Force's four work groups constitute our basic reference
sources. They include:

   (1) Literature Search and Best Practices Report
   (2) EPA Work force Profile and Employment Trends
   Report
   (3) Cultural Diversity Training Strategy Report
   (4) EPA Headquarters Cultural Diversity Survey Report

    Category It * This category includes special studies and
reports issued by the Office of Personnel Management, the
Department of Labor and the General Accounting Office.
Several reports issued byj»estigioug private sector organiza-
tions are also included.

     Category m - In 1991 and  1992, several excellent
resource books on managing diversity were published. Also,
several excellent sources on managing organizational change
havebeenavailablesincetheearlyandmid 1980's. Ten such
references are cited because of their coverage of concepts,
definitions and strategies. The quality of "applied research"
reported in these sources and the analyses  on effective
managerial and leadership styles are also reasons for citing
these as special resources.

   Categoi} IV- Since the Workforce 2000 Report in 1987,
there has been a proliferation of articles and editorials on
"cuUnial diversity,"   The limited articles selected for this
bibliography were picked, admittedly, somewhat arbitrarily.
A more basic teasonfor the choices is their contribution to
elarifjang the relationship between Affirmative Action and
diversify.
  The work group reports will be available to EPA employ-
ees, either through a special distribution within the organiza-
tions where they work, or through the EPA Headquarters
Library.

  "American Diversity: What the 1990CensusReveals..."
American Demographics. Desk Reference Series, No. 1 July
1991.

  "American Household." American Demographics. Desk
Reference Series, No. 3, July 1992.

  Beckhard, Richard and Reuben T. Harris.  Organizational
Transitions Managing Complex Change. Reading, Massa-
chusetts: Addison-Wesley Publishing Co., 1987.

  "From Affirmative Action to Affirming Diversity." Har-
vard Business Review. March/April 1990, pp. 107-117.

  Joseph Coates, Jennifer Jarratt and John B. Mahaffie.
Future Work: Seven Critical Forces Reshaping Work and the
Work Force in North America. San Francisco, C. A.: Jossey-
Bass Publishers.  1990.

  Jamison, David and Julie O'Mara. Managing Workforce
2000: Graining the Diversity Advantage. SanFrancisco, C.A.:
Jossey-Bass Publishers, 1991.
  Lawler, Edward E. ffl. High Involvement Management.
SanFrancisco, C.A.: Jossey-Bass Publishers. 1987
  Lipset, Seymour Martin.  "Affirmative Action and the
American Creed." The Wilson Quarterly. Soring (1992): 52-
62.

  Loden, Marilyn and Judy B. Rosener. Workforce America:
Managing Employee Diversity as a Vital Resource. Home-
wood, Illinois: Business One Irwin Publishers, 1991.

  Morrison, Ann. The New Leaders: Guidelines for Lead-
ership Diversity in America.  San Francisco, C.A.: Jossey-
Bass Publishers, 1992.

  Murray, Margo. Beyond the Myths and Magic of Mentor-

Francisco, C.A.: Jossey-Bass Publishers. 1991.

  QrgariiTfltinnal Culture: Techniques Companies Use to
Perpetuate or Change Beliefs and Values. Washington, D.C.:
U.S. General Accounting Office, 1992.
                                                                                                     57

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Diversity Challenges for EPA - November 1992
A Strategy for Bold Action
 Washington, D.C.:  U.S. Department of Labor, 1992.

   "Rethinking Diversity."   Training Magazine. January
 1992, pp. 23-31.

   Senge, PeterM. TheFifthDiscioline: TheActandPractice
 of the Learning Organization. New York, N.Y.: Doubleday,
 1990.

   Survey of Federal Employees. Washington, D.C.:  U.S.
 Office of Personnel Management, 1992.

   "Tapping the Power of a Diverse Work Force."  Training
 and Development Journal. March 1991.  pp. 38-41.

   The Changing Work Force: Demographic Issues Facing
 the Federal Government Washington, D.C.: U.S. General
 Accounting Office, 1992.

   'The Disabled:   Ready, Willing and Able."   Training
 Magazine. September 1990. pp.29-36

   "The Minority Majority."  American Demographics. Oc-
 tober 1991, pp. 26-34.

   The 1992-92 Hav Employee Attitude Study. Rhetoric vs.
 Reality: How Employees Feel About Empowerment Produc-
 tivity and Quality. Hay Group, 1992.

   Thomas  R,  Roosevelt Jr.  Beyond Race and  Gender:

 Diversity.  American Management Association, 1991.

   Tichy, Noel M. Managing Strategic Change: Technical.
 Political and Cultural Dynamics.  New York,N.Y.:  John
 Wiley and Sons, Inc., 1983.

   "Whose Culture?" Educational Leadership. Journal of the
 Association for Supervision and Curriculum Development.
 January (1992).

   Winfield, Farilee E. The Work and Family Sourcebook.
 Greenvale, New York: Panel Publishers, 1988.

   Workforce 2000. Competing in a  Sellers' Market: Is Cor-
 porate America Prepared? A Survey Report on  Corporate
 Responses to Demographic and Labor Force Trends. Hudson
 Institute/Towers Perrin, 1990.

   Workforce 2000: Work and Workers for the 21st Century.
 Washington, D.C.:  U.S. Department of Labor, 1987.

   Yankelovich, Daniel, et al.  The World at Work:  An
 International Report on Jobs. Productivity and Human Val-
 ues. New York, N.Y.: Public Agency Foundation, 1985.
        58

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Diversity Challenges for EPA - November 1992
                         A Strategy for Bold Action
    A cknowledgements
This report would not have been possible
without the vision and direction and support
from the Deputy Administrator, Hank Habicht,
and many contributions of each member of the
Cultural Diversity Task Force.
  Special thanks to KENDAWSEY, Director of the
Office of Human Resources Management, for his
support consistently throughout the study.
  ALLAN ABRAMSON
  TYRONE AIKEN
  JESSE BASKERVILLE
  JAN BAKER
  RICHBASHAR
  AMBDCABATHJJA
  DANIEL BEARDSLEY
  FERIAL BISHOP
  RONALD BLAKELY
  MARILYN BRATIHWAITE-HALL
  AMY BROOKS-JONES
  DONACANALES
  ROBERT CHAPMAN
  NORMAN CHLOSTA
  DARLENE COCKF1ELD
  PATRICIA CROSS
  MAUREEN DEL ANEY
  DONNA DELEON
  DEBORAH DORSEY
  JANEEPHERMJDES
  BJLLFARLAND
  TIMOTHY FIELDS
  CHUCK FREED
  INDIRA GAIROLA
  KORIGANGADHAR
  BARBARA GARY
  ANNEGOODE
  RENEE COINS
  RICHARD HARDESTY
  CLARENCE HARDY, CHAIR
  JACKIE HAWKINS
  YVETTE HELLYER
  P AM HERMAN
  KATHLEEN HERRIN
  ERIC JACKSON
  PAUL JEAN
  JOHN JONES
  JEROME KING
  MELKOLLANDER
  BOBKNOX
  HENRY LAU
  DAVJDLJEM
  BARBARA MANDULA
  JOANN BRENNAN MCKEE
  ROBERT MONTGOMERY
  ROSA MORALES
  RUFUS MORRISON
  LOREE MURRAY
  MARIA MERCEDES-OLIVERI
  SUZANNE OLIVE
  KATHLEEN O'MALLEY
  BARBARA OSTROW
  ROBERTPAVLQC
  NANCY RAUM
  BETTJEREILLY
  EDUARDO RODELA
  WILLIAM SANDERS
  CAROLYN SCOTT
  CECELIA SCOTT
  MIKE SHAPIRO
  SHERRISHEPPARD
  KELLY SINCLAIR
  ROBERT SMITH
  HECTOR SUAREZ
  JIM WALKER
  KEN WRIGHT
  TOMWYVILL
  GERALD YAMADA
  LAURA YOSHH
  Also special thanks to the following staff for their contri-
butions towards the editing and publishing of this report.

  RICHARD BROWN
  JENNIFER MC CARTHY
  HOWARD BARNETT
  PAULETTE ELLISON
  DAVE EISNER
  AMYKEARNS
  ROB SENTY
  JAMES ANDERSON
  SHARON FURROW
                                                                            59

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