THE OLDER WORKER
AT THE
ENVIRONMENTAL PROTECTION AGENCY
Prepared for Human Resources Council
Paul Keough, Chairman
Prepared by William T. Wlsniewski
Virginia G. Thompson
Region III
February 11, 1987

-------
THE OLDER WORKER AT THE ENVIRONMENTAL PROTECTION AGENCY
Introduction
As the population in the United States ages and the proportion of
older workers increases, every employer will need to anticipate changes
and how they will affect its operations. The Environmental Protection Agency
is taking a step in this direction through its Human Resources Council.
Meeting in San Francisco in October, 1986, the Council decided to try
to assess the current situation relative to older workers, what
changes will be necessary to adjust to new circumstances, what problems
may be encountered in doing so, and what recommendations to make to try
to address the issues. This report will address the concerns arising
at EPA and will recommend positive steps EPA can take to ensure
maximum use of its human potential.
Methodology
A number of sources were used in researching the issue of the older
worker. Dr. Gerald Zeitz, an Associate Professor in the Department of
Human Resource Administration at Temple University in Philadelphia, PA,
completed an organizational culture study of Region III in the fall of
1986. Part of the report included information on the older worker in
Region III. Dr. Zeitz also completed a separate report entitled, "Age and
Organization Behavior: Summary of Research Findings and Notes on Region
III." This report reviewed some of the aspects of older workers,
including the mid-career crisis, older age and performance, and attitudes
and work commitment among older workers. It also outlined strategies
for dealing with older workers. Members of the Human Resources Council
Task Force on Older Workers provided comments on the report. They also
offered comments reflective of their own perspectives and experiences
with older workers. Dr. Zeitz's report also included an extensive
bibliography on organizational structure as it relates to older workers.
In addition, twelve older workers at Region III were asked to review
Dr. Zeitz's "Age and Organization Behavior" study and to provide comments.
Some of their written comments are included in this report. It is clear
from those comments that EPA needs to improve its relations with older workers.
Trends Affecting the Older Worker
Perhaps the most significant trend affecting workers is the aging of the
baby boom, those born between 1946 and 1963. The sheer numbers and increasing
proportion of the population in this generation are creating situations never
before faced in the United States. The aging of the baby boom affects
employment trends in several ways. First, the baby boom's current ages
(26-41) put them at points in their careers at which they are qualified to
seek promotion to middle and senior management. Such promotions have

-------
2
historically been reasonable expectations among professional workers. But
with such a large contingent of workers at this stage of their careers, that
expectation may now be unreasonable. Not only is the large number of such
employees affecting chances for promotion to such positions, but so, too, is
a new trend toward "lean" management, both in the public and private sectors.
Such a trend therefore reduces the number of such positions available.
Coinciding with this trend is the psychological expectation on the
part of such employees that they should be at a point of mid-level management
in their career. When such visible signs of success as promotion and pay
increases do not come or do not come as easily as in the past, employees can
develop morale problems. Generally, this occurs about as employees enter
mid-life and see fewer options in the future. Self-introspection generally
occurs, sometimes resulting in a mid-life crisis. As these employees work
through their self-introspection, they may make some readjustments, either
in their expectations or in their job, in which they end up being more
satisfied.
Dr. Zeitz also cited a phenomenon called the J-curve, which indicates,
that employees' level of job satisfaction increases with age throughout
a career after an initial drop subsequent to taking a first job. Therefore,
assuming that most employees will find increasing job satisfaction, a
period of self-analysis as they enter mid-life may simply focus career
energies.
Concerns
o The overriding concern in Dr. Zeitz1s reports and in comments relating
to the whole issue of the older worker is the youth orientation at EPA. This
youth orientation is in fact real. Appendix A highlights some age statistics
of the Agency's workforce which show that the average age of workers is
declining. This youth orientation is seen as a concern for a number of
reasons. First, from a symbolic viewpoint, an atmosphere that seems to
hire, emphasize, and reward youth is likely not perceived—especially by
older workers—to be sympathetic to the needs of older workers. Second,
on a regular, practical, day-to-day basis, the socialization that goes on
among younger workers at EPA seems to reinforce the youthful orientation.
Not only do older workers say they feel excluded from these activities,
but they also believe they are denied promotions because they are not
part of the young, socializing network. Thus, not only do many older
workers feel the work environment is antagonistic toward age, but they
also feel promotions are denied because of their age. Older workers see
themselves as having more experience and technical knowledge than younger
workers but not being rewarded for their skills. They do not view
favorably being passed over for promotion simply because they move in
different social circles.
o A second concern is that of "plateauing," of employees reaching their
highest career point considerably before retirement. Those workers in this
situation are older than 40 and locked into their current positions, with
up to 20 years still left to work. Employees in this category often see
fewer options available and feel frustrated, unable to get promotions but

-------
3
expected to produce quality work. One Task Force member related two
representative comments he has been hearing:
I thought that when I got to be 40 to 45 years old, I would
be achieving the top of the plateau. Now I see all the
30 to 35-year-olds taking over.
I never wanted to be a manager or administrative type. I
just wanted to be the best technician/engineer/chemist/
whatever I could be to help the Agency and to achieve
the satisfaction of personal accomplishment and the status
of expert. Because of that, 1 peaked at GS-12, and my
career is over.
An EPA employee also reflected this sentiment:
Many older employees of this Agency are constantly under
pressure to increase productivity and efficiency, yet
they are not recognized as the stabilizing force behind
many programs. Supervisors expect exceptional produc-
tivity from the older worker, but in many cases will
not take the effort to recognize these employees for
their continuous achievements. Meanwhile, inexperienced
employees are constantly being recognized and rewarded
for their efforts.
o A feeling of discrimination against older workers is another common
concern. The discrimination is seen as covert rather than overt, often
reflecting the attitudes of others and the indifference many feel toward
the older worker. The greatest dissatisfaction and disenchantment among
workers at EPA is among those who are older (44+), college-educated
professionals, who have not achieved a supervisory or specialist position.
Not only do they cite age discrimination, but also a decline in technical
competency of new employees, a trend toward bureaucratization, and cen-
tralization of resources toward the national level. As a result, the
attitude of the older worker can become one of bitterness and a loss
of faith in the system. One Task Force member quoted a comment typical
of this situation:
My program changed. All of the glamour is	in RCRA/Superfund.
They did not want me because I am too old,	despite all of
the words about everyone has a fair chance	at a job and there
is no discrimination.
o Another concern is one of stereotyping by other workers. Older workers
are seen as less productive, not interested in advancement, less healthy,
living in the old days, not doing things the new way, satisfied with the
status quo, and not interested in training. In reality, however, older
workers are usually more productive, more committed, more reliable, more
experienced, more dependable, show improved judgment, and are more accurate
than their younger co-workers. In fact, creativity among professionals and
scientists seems to be greatest between the ages of 50 and 55.

-------
4
o A final concern is those workers nearing retirement age, which affects
both the worker and the Agency. From the worker's perspective, information
often is lacking on such things as retirement benefits, health insurance,
financial management, and personal wellness. Or, if the information is
available, it is often incomplete, inadequately explained, or provided too
late to be beneficial. A Task Force member related the following:
EPA has not done a good job in preparing employees for
retirement. While some pre-retirement seminars are now
being conducted, some of the comments that I have heard
are that they have been too little too late. "This sort
of thing should have started long ago! I'm not really
sure I'm ready now."
Personnel offices are not perceived as having experts
who can speak confidently on the retirement process,
including advantages/disadvantages, pitfalls, etc.
There is something disconcerting to a GS-12 getting
retirement information from a much lesser grade em-
ployee. Personnel offices should have a specific
person assigned to get up and stay up to speed on
retirement matters.
In addition, some employees feel edged out and encouraged to retire,
rather than rewarded for their experience and knowledge. While some may
welcome retirement, others do not. Again, a Task Force member offered
some perspectives on this by sharing comments he has heard:
They want me to retire, to give the job to a younger
person, but I like what I'm doing and I cannot stand
the sudden change from active productive work to
retirement.
I want to retire gradually, working part-time, then
phase out with lessening time at the office to ease
myself into a new lifestyle. I can still do produc-
tive work.
From EPA's perspective, retiring workers usually mean loss of skilled
workers, resulting in a severe knowledge and experience gap. Overall, as
Appendix A shows, even as the average age of the EPA workforce is declining,
the number of employees eligible for retirement is increasing rapidly. This
situation is especially problematical in certain areas, such as laboratories,
where a significant portion of the workforce is close to retirement age
and a series of retirements in a short time could cause real problems. As
one Task Force member noted:
The major portion of our workforce is over fifty. One of
our laboratories will have, in the very near future, half
of its staff eligible for normal (not early) retirement.
Obviously if too many of the staff were to elect to go
at once, it would cause a severe knowledge and experience
gap in our programs. Hence, our concern here is to promote
an orderly retirement process among a great number of workers

-------
5
without damaging the organization. And, of course, we're also
concerned about the psychological effects that retirement
will have on our staff.
Recomaendat ions
"Be concerned," implored one EPA employee who reviewed Dr. Zeitz's
report. The recommendations included here are those suggested by Task
Force members, older employees at EPA, and the Zeitz report and are
designed to increase the level of concern for the older worker.
Recognizing the older worker's value to EPA is a vital first step. The
experience of the older worker must be tapped and knowledge shared so
that one of the Agency's greatest assets can continue to thrive. An
improved understanding among all employees of the older worker's ex-
perience, skill, and perspective is essential. Primarily, after all,
all employees want an opportunity to grow. As one employee noted, "In
the next five years, Lord's will, I hope to grow in my present position
and to maintain the high standard of work I have set for myself." EPA
can take a number of positive steps toward encouraging all employees—
including older workers—to continue growing. After all, as a Task Force
member said, "The old-timers who have paid their dues must not be forgotten."
1.	Mentors. Older workers can serve as mentors for younger employees, sharing
their technical knowledge and understanding of the informal culture of EPA.
Experienced workers would also serve well as teachers of courses in their
areas of expertise. An older worker who could effectively relate lots of
interesting stories and case studies about a topic could easily be a better,
more captivating instructor than a younger, less experienced employee.
2.	Improved Communications and Understanding. EPA can take steps to improve
employees' understanding of each other. Morris Massey has produced a number
of videotapes which explain how values established in youth affect us through-
out our lives. Arranging showings of the tapes and holding discussions about
them could help in beginning a dialogue among employees of all generations.
3.	Policy Development. Older workers should also be included in policy
development by serving as members of councils, task forces, and committees.
While forming more committees is not a cure, active participation from those
involved is often a good beginning.
4.	Recognition. Recognize older workers' continuing good service and loyalty
to the Agency since awards and certificates can help with morale. One employee
noted:
I was very fortunate to have made a major career change a
few years ago which has been very rewarding to me. I have
been given rewarding responsibilities, the recognition, and
the confidence of my superiors. My supervisors have taken

-------
6
time and the initiative to reward my efforts both formally
and informally. . . . Older workers need to know that advance-
ment is not closed to them because of their age, that they are
not just being taken for granted.
5.	Policy Statements. The Administrator should circulate a policy statement
outlining an EPA policy of non-discrimination on the basis of age. In ad-
dition, another policy statement, recognizing older workers' place in the
workforce, their importance, and encouraging opportunities including rotations
and promotions for older workers, should be circulated.
6.	Training. Training opportunities should be available for both new and
experienced workers, with a goal of encouraging all employees to grow
personally and professionally.
7.	Counseling. Counseling expertise is also essential. Such counseling
should include information on retirement, health benefits, personal wellness,
outside placement opportunities for those who want to leave the Agency,
opportunities for second careers after retirement, and volunteer work. One-
employee noted that his goal of a GS-13 position is unlikely, so he
would like over the next several years to complete my
studies at local universities and find a suitable position
at another agency or industry where I might use what I have
learned in school.
Retirees, either individually or through a council of retirees, should assist
with this counseling. Such assistance would provide a valuable perspective
and real life experiences with making decisions relating to retirement.
8.	Phased retirement. Phased retirement for those who wish to continue
working part-time should be encouraged. Because retirement decisions appear
to be based on current employment situations, the satisfaction level with
the job will influence whether an employee will retire or continue working.
Finances, of course, also influence such a decision, and part-time em-
ployment in a job that is satisfying could serve an employee well.
9.	Job enlargement. One specific thing that EPA can do to improve
job responsibility, variety, and challenge is to increase these
aspects in non-supervisory jobs. Technical specialist positions, for
example, can require increased competence, and employees can gain
recognition for their efforts.
10.	Job "ownership." Through a widely publicized program of awards and
participation, all employees, including older employees, can feel a part of
or aspire to an Increased "ownership" of their job in the Agency. This goes
beyond recognition for loyal service and actually requires employees to
share in the development of the job. In return, EPA would reward outstanding
employees.
11.	Job Rotation/Special Projects. Clearly, a new attitude of including
older workers in all kinds of opportunities for training, specialist
positions, supervisory positions, special projects, job rotations, and
temporary assignments is essential so as not to lose an asset valuable to

-------
7
EPA. For example, in Region III, the new Center for Environmental Learning
may be a good vehicle for providing rotations and developmental positions as
older workers with ideas and suggestions on how to educate the public on
environmental issues can offer experience. Ultimately, a new grade, authority,
and reward system may be necessary, but instituting these steps first may
help alleviate some of the current problems.
12.	Reassignments. Reassignment of older workers to different program offices
when program emphasis changes should'be encouraged. Not only would the
employee benefit, but so, too, would the new program which would get years of
valuable experience and knowledge applied to the new program. EPA must,
however, make such a change seem appealing to the older workers so that they
do not feel they are being "stuck" somewhere.
13.	Demonstration Program. A demonstration program to try some of the above
recommendations on a smaller scale would provide valuable information on their
effectiveness. Such a pilot program could be tried either in a Regional office
or in one specfic Division within one Regional office.

-------
Appendix A
Age of EPA Workforce
1984	1985	1986	1987
Average Age	42.45	41.31 40.38 40.1
Youngest Headquarters Offices: OSWER and OPPE at 36.2 and 36.6 respectively
Oldest Headquarters Office: OR&D at 45.5
Youngest Regions: Regions 2 and 9 at 36.5
Oldest Region: Region 8 at 41.1
Age of Supervisors, Managers, and Executives at EPA
1984	1985	1986	1987
Average Age	47.47 45.18 44.19 44.0
Youngest Headquarters Offices: OSWER at 40.2; OPPE and OGC at 40.6
Oldest Headquarters Office: OR&D at 48.6
Youngest Regions: Regions 2 and 9 at 40.7 and 40.9 respectively
Oldest Region: Region 8 at 46.1
Percent of Supervisors, Managers, and Executives Eligible to Retire Now
Average: 5.9%
Headquarters Offices with Lowest Percent: OPPE, OGC, and OECM at 0.0%
Headquarters Offices with Highest Percent: OA at 18.2%; ORD at 15.7%; OAR at 15.4%
Region with Lowest Percent: Region 3 at 0.0%
Region with Highest Percent: Region 6 at 6.6%
Percent of Supervisors, Managers, and Executives Eligible to Retire in September, 1991
Average: 15.17%
Headquarters Offices with Lowest Percent: OGC and OPPE at 0.0%
Headquarters Office with Highest Percent: OR&D at 35.7%
Regions with Lowest Percent: Region 3 and Region 2 at 5.8% and 5.9% respectively
Region with Highest Percent: Region 8 at 22.6%

-------
Appendix B
Selected Bibliography
(Expecially readable, practitioner-oriented selections are
indicated with an asterisk)
Atchley, Robert. 1972. The Social Forces in Later Life.
Belmont, Cal.: Wadsworth.
*Bardwick, J.M. 1983. "Plateauing and productivity." Sloan
Management Review 24: 67-73.
Brum, 0. 1976. "Male midlife crisis—a comparative analysis."
In Growing Old in American. Vol. 2, edited by B. Heff. New
Brunswick, N.J.: Transaction Books.
Collins, E., and E. Scott. 1978. "Everyone who makes it has a
mentor." Harvard Business Review 51: 89-101.
Dennis, Wayne. 1966. "Creative productivity between the ages of
20 and 80 years." Journal of Gerontology 21.
Ference, T.P., A.F. Stoner, and E,K. Warren. 1977. "Managing
the career plateau." Academy of Management Review : 602-612.
Gill, S.J., L.C. Coppard, and .M.A. Lowther. 1983. "Mid-life
career development theory and research: implications for work
and education." Aging and Work 6: 15-29.
Glinow, M.A. Von., M.J. Driver, K. Brousseau, and J.B. Prince.
1983. "The design of a career-oriented human resource system."
Academy of Management Review 8: 23-32.
*Greenhaus, Jeffrey. 1987. Career Management. Chicago: Dryden
Press.
Hall, D.T., and K. Nougaim. 1968. "An examination of Maslow's
need hierarchy in an organizational setting." Organization
Behavior and Human Performance 3: 12-35.
Hanlon, Martin. 1986. "Age and Commitment to work." Research
on Aging 8 (June) : 289-315".
*Hunt, David M., and Carol Hunt. 1983. "Mentorship: A career
training and development tool." Academy of Management Review
8: 475-485.
Hunt, John, and Peter Saul. 1975. "The relationship of age,
tenure, and job satisfaction in males and females." Academy of
Management Journal 20.
Kahana, Eva, and Boaz Kahana. 1982. "Environmental continuity,

-------
futurity, and adaptation of the aged." In Aging and Milieu,
edited by G. Rowles and RA. Ohta. New York: Academic Press.
Kaufman, H.G. 1974. Obsolescence and Professional Career
Development. New York: AMACOM.
Kaufman, H.G. 1982. Professionals in Search of Work. N.Y.:
Wiley.
Kotter, J.P. 1973. "The psychological contract: managing the
joining-up process." California Management Review 15: 91-99.
Kram, K.E. 1983. "Phases of the mentor relationship." Academy
of Management Journal 26.
Kram, K.E. 1985. Mentoring at Work: Developmental Relationships
in Organizational Life. Glenview, 111.: Scott-Foresman.
Lawrence, B.S. 1980. "The myth of the midlife period of
crisis." Sloan Management Review 21: 35-49.
Levinson, D.J. 1977. "The mid-life transition: a period in
adult psychosocial development." Psychiatry 40: 99-112.
Levinson, D.J., C.N. Darrow, E.B. Klein, M.H. Levinson & B.
KcKee. 1978. Seasons of a Man's Life. New York: Knopf.
Levinson, Daniel J. 1977. "The mid-life transition: a period in
adult psychosocial development." Psychiatry 40: 104-
*Levinson, H. 1969. "On being a middle-aged manager." Harvard
Business Review 47: 51-60.
~Morgan, P.I., J. Patton, and H.K. Baker. 1985. "The
organization's role in managing mid-life crisis." Training and
Development Journal 39 (January): 56-59.
*Near, J.P. 1984. "Reactions to the career plateau." Business
Horizons 27: 75-79.
Parasuraman, Saroj, and Joseph Alutto. 1984. "Sources and
outcomes of stress in organizational settings: toward the
development of a structural model." Academy of Management
Journal 27: 330-350.
~Payne, R.A. 1984. "Mid-career Block." Personnel Journal 63:
38-40,42,44,46-48.
Philips, L.L. 1977. Mentors and Proteges: A Study of the Career
Development of Women Managers and Executives in Business and
Industry. Ph.D dissertation. University of California at Los
Angeles.

-------
Renwick, P.A., and E.E. Lawler. 1978. "What you really want
from your job." Psychology Today 2: 53-65, 118.
Rosen, B., and T.H. Jerdee. 1985. Older Employees: New Roles
for Valued Resources. Homewood, 111.: Dow Jones-Irwin.
Schein, E.H. 1978. Career Dynamics: Matching Individual and
Organizational Needs. Reading, Mass.: Addison-Wesley.
Schein, E.H. 1984. "Culture as an environmental context for
careers." Journal of Occupational Behavior 5: 71-81.
~Shapiro, E.C., F.B. Haseltine, and M.P. Rowe. 1978. "Moving
up: role models, mentors, and the 'patron system1". Sloan
Management Review 19: 51-58.
*Sonnenfeld, Jeffrey. 1978. "Dealing with the aging workforce'."
Harvard Business Review (Nov.-Dec) : 81.-92.
Super, D.E. 1980. "A life-span, life-space approach to career
development." Journal of Vocational Behavior 16: 282-98.
Taylor, Ronald. 1975. "Age and experience as determinants of
managerial information processing and decision-making
performance." Academy of Management Journal 18.
Vroom, Victor, and Bernd Pahl. 1971. "Age and risk-taking among
managers." Journal of Applied Psychology 12.
Weiford, A.T. 1976. "Thirty years of psychological research on
age and work." Journal of Occupational Psychology 49.
Work in American Institute, Inc. 1980. The Future of Workers in
America. Scarsdale, New York. (700 White Plains Road - Zip:
10583)

-------