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National Advisory Council for

Environmental Policy and Technology

February 15, 2012

The Honorable Lisa P. Jackson

Administrator

United States Environmental Protection Agency

1200 Pennsylvania Avenue, N.W.

Washington, D.C. 20460

RE: Fourth NACEPT Advice Letter on EPA Workforce Planning: Strategies to Attract 

and Retain Superior Executive Leadership Talent

Dear Administrator Jackson: 

The National Advisory Council for Environmental Policy and Technology (NACEPT) is 

working on your charge to provide advice for development of the Agency’s next Strategic 

Workforce Plan. The charge comprises the following topics: 

1. Scientific and technical competencies needed to be prepared for tomorrow’s challenges. 

2. Strategies to obtain and retain scientific and technical expertise. 

3. Strategies to attract and retain superior executive leadership talent. 

4. Leadership capabilities and culture for ―One EPA‖. 

5. Ensuring diversity. 

On January 31, 2011, NACEPT responded with an advice letter on the first charge question: 

scientific and technical competencies needed for the Agency to be prepared for tomorrow’s 

challenges. This was followed by a second advice letter on July 11, 2011, summarizing 

NACEPT’s recommendations addressing charge questions #2 (Strategies to obtain and retain 

scientific and technical expertise) and #4 (Leadership capabilities and culture for ―One EPA‖). 

A third advice letter addressing Topic #5 (―Ensuring diversity‖) was transmitted on 

December 22, 2011. This final advice letter focuses on Topic #3 (―Strategies to attract and retain 

superior executive leadership talent‖). 
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RECOMMENDATIONS AND RESPONSE TO THE THIRD QUESTION IN THE 

CHARGE: STRATEGIES TO ATTRACT AND RETAIN SUPERIOR EXECUTIVE 

LEADERSHIP TALENT

“Given the complexity of EPA’s mission, the rapid pace of scientific and technological advances, 

and shifts in policy, science, engineering and other technical competencies, how can EPA best 

attract and retain superior executive leadership talent that can effectively direct and challenge 

its workforce so that the Agency can maintain its position as an environmental leader? How can 

EPA best position its Senior Executive Service (SES) members to lead and support a highly 

technical and evolving workforce?”

Optimizing the effectiveness of leadership capabilities can only be achieved when the right 

leaders with the right skills focused on the right priorities are in place. In the next decade, a 

significant focus at EPA will be building the pipeline of leadership talent which must be more 

diverse and inclusive, with more focus on increasing the numbers of underrepresented minorities, 

especially Hispanic leaders, in the Agency. Additionally, if the "One EPA" objective is to be 

met, the organization must be more collaborative and inclusive with all stakeholder groups in its 

approaches to achieving these outcomes. 

With government budgets shrinking and with fewer dollars to spend, leaders must focus on 

overall Agency efficiency and effectiveness in achieving the goals of the organization. The four 

critical elements of the OPM SES performance management framework for leaders, which 

include leading change, leading people, business acumen, building coalitions and results driven,

are very consistent with the recommendations covered in this advice letter. The areas addressed 

in this letter include:

Organizational Transformation

Leadership Competencies

Succession Planning

External Sourcing/Recruitment

Mobility

Organizational Transformation

Achieving the vision outlined in the FY 2011–2015 EPA Strategic Plan will require significant 

leadership engagement and collaboration across the Agency. Such collaboration is essential to 

insuring alignment among EPA political appointees and career staff members who lead the 

Agency at the levels of Assistant Administrator, Deputy Assistant Administrator, and Regional 

Administrator. By designation, EPA leaders must possess the knowledge, expertise and 

experience needed to meet the challenges of protecting human health and the environment, and 

are required to establish and direct the path to future success of the Agency. To ensure 

continuity of function through a corps of leaders equipped to face present and future mission and 

program priorities, EPA must advance its Senior Executive Service (SES) staff development 

consistent with the EPA Strategic Plan.
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Over the past decade, significant progress has been made to develop and maintain superior 

executive leadership talent in EPA. For example, around 2009, EPA staff developed a draft 

strategy for executive development aimed at (i) creating a continuous pool of highly qualified 

candidates to move into executive leadership positions in the Agency, (ii) providing 

developmental activities for entry-level and mid-career SES staff to enhance their executive 

performance and acquire a broader perspective of the Agency and government, and (iii) 

recognizing and utilizing senior-level SES experiences for improving performance of entry-level

and mid-career SES staff, while offering these senior-level SES staff options for post-service 

career path transitions. Based on the EPA Strategic Plan, a 2011 update to the draft executive 

development strategy proposes five leadership principles: outcome orientation, shared 

understanding, collaborative relationships, inclusiveness, and ownership. NACEPT considers 

these principles a sound foundation on which EPA could build and sustain the high quality 

leadership needed for future success of the Agency. NACEPT therefore advises EPA to develop 

and implement a strategic action plan for achieving the objectives declared in the draft executive 

development strategy. Two major elements of this action plan—leadership competencies and 

succession planning—are discussed next.

Leadership Competencies

Based on an evaluation of potential challenges for the decade ahead, NACEPT’s First Advice 

Letter on EPA Workforce Planning identified several needed technical competencies as well as 

the following leadership competencies: trans-disciplinary thinking, partnership development, 

public outreach, and global perspective. NACEPT believes these areas of leadership expertise 

are relevant to the strategic goals and cross-cutting strategies set out in the Strategic Plan. These 

are consistent with those outlined by the Office of Personnel Management. To attract and retain 

SES candidates with these leadership skills, EPA should maintain a disciplined and inclusive 

approach that assesses mission critical skills and competencies at an organizational level. In so 

doing, the Agency can better understand which developmental opportunities are most appropriate 

to pursue with individual SES candidates. This approach should also address other 

organizational values, such as diversity and inclusion, which are discussed in NACEPT’s Third 

Advice Letter on EPA Workforce Planning. 

NACEPT reviewed several published results of leadership studies conducted in the public and 

private sectors1,

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and identified the following as the most important leadership competencies for 

organizational success: strategic thinking, participative management, outcome orientation, 

building relationships with diverse stakeholders, and resourcefulness. These are consistent with 

the competencies listed in EPA’s Guide to the SES Qualifications, which support the Agency’s 

executive core qualification requirements for leading change, leading people, meeting 

organizational goals and customer expectations, managing strategic resources, and building 

coalitions. EPA should review the mix of technical and management skills required by senior 

executive leaders to achieve the strategic objectives of the Agency. Furthermore, this review 

should identify gaps in leadership that may result from projected retirements and evaluate 

 

1

2011/2012 Trends in Executive Development: A Benchmark Report, Bonnie Hagemann and John Mattone, 

Executive Development Associates, Inc. and Pearson.

2 Boundary Spanning Leadership: Mission Critical Perspectives from the Executive Suite, Center for Creative 

Leadership, 2011.
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alternative development activities for filling these major gaps, including formal training, focused 

tasking, coaching and mentoring. This review should also include an analysis of the 

demographics of the leadership ranks consistent with recommendations in the Diversity Letter 

and develop explicit strategies to close major gaps (e.g., Hispanics in leadership roles, etc.).

Succession Planning

Development of emerging leaders across EPA is an important part of the development strategy. 

The succession planning process is an important component of intelligent organizational 

transition and workforce development, as well as an effective tool for anticipating career 

development needs of individuals and preparing them for future leadership opportunities. In 

2006, EPA developed a five-step succession management planning process comprising3(i) 

strategic analysis, (ii) position and succession pool requirement definition; (iii) succession 

management plan development and implementation, (iv) continuous improvement using lessons 

learned, and (v) ongoing communication. The previous discussion on competency review aligns 

with steps (i) and (ii) of this succession planning process.

To gage progress of succession planning and leadership development efforts across the Agency,

an informal survey of leadership development best practices in the regions was compiled4. Also, 

NACEPT consulted with representatives from ORD who had designed and implemented an 

impressive Senior Leadership Development Program as part of their succession planning efforts. 

Benchmarking regional and office leadership programs revealed that there is significant energy, 

innovation, and commitment across EPA to address succession issues. However, the diversity of 

approaches throughout the Agency is a concern as it is counterintuitive to the ―One EPA‖

principle of ―Alignment‖ which encourages a shared understanding of problems with 

synchronized implementation efforts. While it is important that Agency succession planning 

accommodate unique needs in regions and offices, NACEPT recommends that EPA evaluate 

these succession leadership programs for alignment with the Agency’s succession plan, identify 

a core set of best practices and programs, and leverage and streamline these succession planning 

practices to accelerate their implementation across the Agency. NACEPT recommends that the 

Executive Management Council lead this effort as part of a formal charge to develop and drive, 

in consultation with all EPA SES leaders, the organizational strategic action plan mentioned 

above to fully implement the Executive Leadership Strategy developed in 2009.

Roughly 70% of all SES candidates are hired from internal candidates, which offers EPA the 

opportunity to identify leaders early in their career and provide training, mentoring, and other 

critical leadership opportunities known to develop essential skills that align with EPA 

organizational needs. The Successful Leaders and Aspiring SES programs are excellent 

examples of the training EPA offers its employees who desire to be leaders. However, to 

augment self-selected leadership training opportunities and increase the number of fully certified 

SES candidates, NACEPT recommends that EPA immediately recommit to and fund the formal 

Candidate Development Program. Additionally, the Agency should develop an effective strategy 

 

3 EPA’s Plan for Strategic Leadership Succession 2006/2007, Prepared by the Human Capital Planning Branch, 

Office of Human Resources, OARM. August 2006.

4 Best Practices for Leadership Development from EPA Regional Offices, September 2011.
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for ensuring a diverse pool of internal and external SES candidates to fill identified areas of 

underutilization of minorities.

External Sourcing/Recruitment

In addition to the internal succession management process discussed previously, EPA can also 

recruit external candidates into the SES staff development program. Because of the high degree 

of technical expertise required of SES candidates, EPA should adopt practicable measures to 

identify outstanding leadership talent from external sources for consideration as potential SES 

candidates. In the past, EPA has implemented a special hiring authority provided under Title 42 

of the United States Code. The flexibility of the Title 42 hiring program enables EPA to 

compete with industry and academia to fill critical research and science leadership positions. 

Recently, a National Research Council expert committee commended EPA for appropriately

implementing its Title 42 program5. Although EPA cannot hire directly into the SES program 

under Title 42 authority, candidates being considered for Title 42 hiring may also be found to 

possess needed leadership competencies. In addition to Title 42, EPA may also find candidates 

of this caliber under consideration for other positions, such as Scientific and Professional (ST) 

positions and Senior-Level (SL) positions. EPA should also leverage these other hiring 

programs where the Agency clearly taps into external sources of potential SES candidates. Thus, 

NACEPT urges EPA to leverage opportunities provided by hiring programs, such as Title 42, 

Scientific and Professional (ST), and Senior-Level (SL), to identify potential high-level external 

candidates for current and future leadership positions.

Mobility

NACEPT’s First Advice Letter on Workforce Planning identified that in the future there will be 

a need for more interdisciplinary skills and more ability to work with diverse stakeholders and 

communities. The SES Mobility Program implemented in the early 2000’s moved 30 to 40 

percent of EPA senior leadership into entirely new areas specifically to grow and challenge 

potential future leaders of the Agency. The mobility program succeeded in lessening the silo 

mentalities that could develop when staff spend extended periods in a single department or 

program. Also, the mobility program raised the leadership potential of that candidate class of 

EPA staff. The success of the mobility program hinged on the assurance that staff assignments 

were neither politically-motivated nor retaliatory, but aimed at evolving a transparent, fair, 

inclusive process for expanding staff development opportunities.6 There has not been continuity 

nor adequate diversity in the SES Mobility Program at EPA. NACEPT considers this program 

an internal best practice that should be reinstated with current leadership support. NACEPT also 

recommends that EPA understand the strengths and weaknesses of the SES Mobility Program 

and incorporate lessons learned into future strategies.

 

5

The Use of Title 42 Authority at the U.S. Environmental Protection Agency: A Letter Report, Prepared by the 

National Research Council of the National Academies. April 2010.

6 NACEPT discussion with Linda Fisher, October 11, 2011.
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Summary of Recommendations on Strategies to Attract and Retain Superior Executive 

Leadership Talent

NACEPT’s Second Advice Letter on EPA Workforce Planning recommended strategies for 

recruiting, hiring and retaining the expertise needed to meet the Agency’s future challenges. The 

rationale supporting those recommendations centered on establishing and maintaining direction, 

alignment, and commitment across multiple boundaries within the Agency, and building strong 

collaborations with external communities and stakeholders. NACEPT considers these leadership 

attributes essential to all levels of the Agency. The following additional recommendations focus

on EPA’s senior executive leadership ranks.

1. Accelerate Organizational Transformation by Developing an Agency Action Plan 

Focused on Executive Development and Strengthening the Leadership Competencies of 

Current SES Staff and Emerging Leaders. EPA should charge its Executive Management 

Council to develop and implement a strategic action plan for achieving the objectives declared in 

the draft executive development strategy. As part of this action plan, EPA should continue to 

promote SES leadership competencies to meet the challenges posed by a constantly changing 

environmental, technological, and socio-political landscape. Care should be given to ensure a 

diverse pool of talent in the pipeline and to strengthen leadership competencies in the area of 

inclusion. Based on published results of leadership studies conducted in the public and private 

sectors, the following five competencies currently deserve special focus at EPA: strategic 

thinking, participative management, outcome orientation, building relationships with diverse 

stakeholders, and resourcefulness. Although, these competencies are consistent with the 

leadership principles described in EPA’s Leadership Development Strategy, we recommend that 

EPA re-evaluate these competencies annually, with a 3 to 5 year outlook, to identify and fill 

possible gaps early.

2. Strengthen Basic Leadership Skills in SES Candidates and Fund the formal Candidate 

Development Program. EPA should guide individual leadership development by looking 

specifically at the pipeline for leadership and evaluating potential candidates for inclusive 

leadership skills and behaviors. EPA should incorporate appropriate developmental 

opportunities for members of the class. This can be developed with cross-functional 

assignments, career development planning that incorporates diversity of experience, project team 

leadership assignments, specific inclusive leadership education, and engagement with 

stakeholders. This approach must be augmented by a fully funded formal Candidate

Development Program to ensure EPA has a strong pipeline to meet the urgent need for qualified 

SES candidates.

3. Ensure Effective Succession Planning and External Hiring for Departments. EPA

program managers should consult annually with the Office of Human Resources to identify 

candidates for leadership succession within their departments and across the Agency. Evaluation 

of these candidates should focus on competency, readiness at present and in the near future, and 

any existing skills gaps. Results of this evaluation should be used to inform individual career 

development plans by identifying opportunities for focused tasking, training, and mentoring. 

This succession planning approach should not guarantee a path to SES status for any individual 

potential candidate, but rather, should ensure departments are prepared for future attrition within 
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the SES ranks and that a diverse pool of SES candidates exists. In addition, top-notch external 

candidates being considered under hiring programs such as Title 42, Scientific and Professional 

(ST), and Senior-Level (SL), may be also considered for possible recruitment into the SES 

program.

4. Enhance Career Management Planning to Encourage Mobility. EPA should reinstate the 

SES Mobility Program or develop a strategy that would encourage SES candidates to strive to 

achieve cross-functional, cross-program and cross-geography leadership experiences. Such 

opportunities should also be extended to mid-career SES aspirants. By ensuring a diverse pool 

and supporting staff in gaining a diversity of experiences, the Mobility Program can facilitate 

interdisciplinary and personnel leadership skills development at the individual level, while 

advancing the ―One EPA‖ goal at the organizational level.

CONCLUSION

EPA political and career staff administrators must lead by demonstrating commitment through 

personal action, effectively communicating organizational goals and priorities to employees at all 

levels of the Agency, by fostering an inclusive work environment, and building strong 

collaborations both within the Agency and with external communities and stakeholders. 

NACEPT believes the recommendations in this Advice Letter cannot happen without strong 

leadership direction and support for a more diverse and inclusive organization. Additionally,

these actions must be closely aligned with the strategic direction of the Agency going forward.

We appreciate the opportunity to work on this important topic and offer any additional advice 

that you may require in the future.

Sincerely,

/Signed/ /Signed/

Dr. James H. Johnson, Jr. Leah Ann Lamb

Chair Leadership Sub-team Lead

Attachment: Sources and Acknowledgments

cc: Bob Perciasepe, Deputy Administrator 

Craig E. Hooks, Assistant Administrator, OARM 

Cynthia D. Jones-Jackson, Acting Director, OFACMO 

NACEPT Members 
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Sources and Acknowledgments

Workforce Workgroup/Leadership Sub-team

NACEPT Members

Effenus Henderson (Workgroup Member)

Sara Kendall

Leah Ann Lamb, Sub-team Lead

Olufemi Osidele

OFACMO Management and Support Staff

Eugene Green

Cynthia Jones-Jackson

Mark Joyce, Acting NACEPT DFO

Megan Moreau

Lisa Tomlinson

Interviews and Consultations

Linda Fisher, Vice President for Safety, Health & Environment and Chief Sustainability Officer, 

Dupont

Jennifer Margolies, Program Analyst, EPA Office of Research and Development 

A. Stanley Meiburg, Deputy Regional Administrator, EPA Region 4

Claire Milam, Program Manager, Executive Leadership Development, EPA Office of Human 

Resources

William Ocampo, Program Analyst, EPA Office of Research and Development 

David O’Connor, Consultant, Federal Consulting Group 

Chris Zarba, Acting Director, National Center for Environmental Research, EPA Office of 

Research and Development 

References

Third NACEPT Advice Letter on EPA Workforce Planning: Ensuring Diversity, December 

2011.

Second NACEPT Advice Letter on EPA Workforce Planning: Leadership Capabilities and 

Culture for One EPA and Strategies to Obtain and Retain Scientific and Technical 

Expertise, July 2011.

First NACEPT Advice Letter on EPA Workforce Planning: Scientific and Technical 

Competencies to Meet Tomorrow's Challenges, January 2011.

2011/2012 Trends in Executive Development: A Benchmark Report, Bonnie Hagemann and John 

Mattone, Executive Development Associates, Inc. and Pearson, September 2011.

Best Practices for Leadership Development from EPA Regional Offices, Prepared by A. Stanley 

Meiburg, Deputy Regional Administrator, EPA Region 4, September 2011. 

Boundary Spanning Leadership: Mission Critical Perspectives from the Executive Suite, Center 

for Creative Leadership, 2011.
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The Use of Title 42 Authority at the U.S. Environmental Protection Agency: A Letter Report, 

Prepared by the National Research Council of the National Academies, April 2010.

EPA’s Plan for Strategic Leadership Succession 2006/2007, Prepared by the Human Capital 

Planning Branch, Office of Human Resources, OARM, August 2006.

Executive Core Qualifications, Office of Personnel Management.
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NOTICE

This letter is the product of the National Advisory Council for Environmental Policy and 

Technology (NACEPT), an advisory committee created under the Federal Advisory 

Committee Act. NACEPT provides independent advice and recommendations on 

environmental policy, technology, and management issues to the Administrator and other 

officials of the U.S. Environmental Protection Agency (EPA). The recommendations in this 

letter reflect the opinions and views of NACEPT, and not necessarily the views or opinions of 

the U.S. EPA.

NACEPT’s reports and advice letters are posted on the EPA website at 

http://www.epa.gov/ofacmo/nacept.