United States Government Accountability Office

GAO Testimony before the Committee on 

Education and the Workforce, House of 

Representatives

HIGHER EDUCATION

Science, Technology, 

Engineering, and 

Mathematics Trends and the 

Role of Federal Programs 

Statement of Cornelia M. Ashby, Director, 

Education, Workforce, and Income Security Issues 

For Release on Delivery

Expected at 10:30 a.m. EDT 

Wednesday, May 3, 2006

 

GAO-06-702T 
What GAO Found

United States Government Accountability Office

Why GAO Did This Study

Highlights

Accountability Integrity Reliability

May 3, 2006

HIGHER EDUCATION

Science, Technology, Engineering, and 

Mathematics Trends and the Role of 

Federal Programs 

Highlights of GAO-06-702T, a report to 

Committee on Education and the 

Workforce, House of Representatives 

The United States is a world leader 

in scientific and technological 

innovation. To help maintain this 

advantage, the federal government

has spent billions of dollars on 

education programs in the science,

technology, engineering, and 

mathematics (STEM) fields for

many years. However, concerns 

have been raised about the nation’s 

ability to maintain its global

technological competitive

advantage in the future. 

This testimony is based on our 

October 2005 report and presents

information on (1) trends in degree 

attainment in STEM- and nonSTEM-related fields and factors 

that may influence these trends, 

(2) trends in the levels of 

employment in STEM- and nonSTEM- related fields and factors

that may influence these trends, 

and (3) federal education programs 

intended to support the study of

and employment in STEM-related

fields. For this report, we analyzed

survey responses from 13 civilian 

federal departments and agencies; 

analyzed data from the

Departments of Education and

Labor; interviewed educators,

federal agency officials, and 

representatives from education 

associations and organizations; and 

interviewed students. 

While postsecondary enrollment has increased over the past decade, the 

proportion of students obtaining degrees in STEM fields has fallen. In 

academic year 1994–1995, about 519,000 students (32 percent) obtained 

STEM degrees. About 578,000 students obtained STEM degrees in academic 

year 2003–2004, accounting for 27 percent of degrees awarded. Despite 

increases in enrollment and degree attainment by women and minorities at 

the graduate level, the number of graduate degrees conferred fell in several 

STEM-related fields from academic year 1994–1995 to academic year 2003–

2004. College and university officials and students most often cited subpar 

teacher quality and poor high school preparation as factors that discouraged 

the pursuit of STEM degrees. Suggestions to encourage more enrollment in 

STEM fields include increased outreach and mentoring. 

The past decade has seen an increase in STEM employees, particularly in 

mathematics and computer science. From 1994 to 2003, employment in 

STEM fields increased by an estimated 23 percent, compared to 17 percent 

in non-STEM fields. Mathematics and computer science showed the highest 

increase in STEM-related employment, and employment in science-related 

fields increased as well. However, in certain STEM fields, including

engineering, the number of employees did not increase significantly. Further,

while the estimated number of women, African-Americans, and HispanicAmericans employed in STEM fields increased, women and minorities 

remained underrepresented relative to their numbers in the civilian labor 

force. The number of foreign workers employed in the United States has 

fluctuated, experiencing declines in 2002 and 2003. Key factors affecting 

STEM employment decisions include mentoring for women and minorities 

and opportunities abroad for foreign employees. 

Thirteen federal civilian agencies spent approximately $2.8 billion in fiscal 

year 2004 to fund over 200 programs designed to increase the numbers of 

students in STEM fields and employees in STEM occupations and to improve 

related educational programs. The funding reported for individual STEM 

education programs varied significantly, and programs most commonly 

provided financial support to students or infrastructure support to

institutions. However, only half of these programs had been evaluated or had 

evaluations underway, and coordination among STEM education programs 

was limited. It is important to know the extent to which existing STEM 

education programs target the right people and the right areas and make the 

best use of available resources. Since our report was issued in October 2005, 

Congress, in addition to establishing new grants to encourage students from 

low-income families to enroll in STEM fields, established an Academic

Competitiveness Council to identify, evaluate, coordinate, and improve 

www.gao.gov/cgi federal STEM programs. -bin/getrpt?GAO-06-702T.

To view the full product, including the scope 

and methodology, click on the link above. 

For more information, contact Cornelia M. 

Ashby at (202) 512-7215 or

AshbyC@gao.gov. 
Mr. Chairman and Members of the Committee: 

Thank you for inviting me here today to discuss U.S. trends in the fields of 

science, technology, engineering, and mathematics (STEM) in relation to

the changing domestic and global economies. The health of the U.S. 

economy is directly tied to our science and technology industries, and the 

United States is a world leader in scientific and technological innovation. 

Since 1995, for example, the United States has generated the largest share 

of high-technology manufacturing output of any country in the world. 

Concerns have been raised, however, about the nation’s ability to maintain

its technological competitive advantage, especially in light of other 

nations’ investments in their own research infrastructures, the aging and 

changing U.S. workforce, and the fiscal challenges facing the nation. From

1990 to 2003, research and development expenditures outside the United

States have more than doubled, from about $225 billion to over $500 

billion. According to the Census Bureau, the median age of the U.S. 

population in 2004 was the highest it had ever been, and the growth of the 

labor force is expected to slow considerably, becoming negligible by 2050. 

Further, as the United States becomes a more diverse society, minorities, 

in addition to women, will continue to represent a continuously increasing 

share of the workforce, yet women and minorities have tended to be 

underrepresented in STEM education programs and career fields. These 

factors, concurrent with the nation’s large and growing long-term fiscal 

imbalance, present significant and difficult challenges for policymakers as 

they tackle how best to ensure that our nation can continue to compete in

the global marketplace. 

My testimony today will focus on three key issues: (1) trends in degree 

attainment in STEM- and non-STEM-related fields and factors that may 

influence these trends, (2) trends in the levels of employment in STEMand non-STEM-related fields and factors that may influence these trends, 

and (3) federal education programs intended to support the study of and 

employment in STEM-related fields. My comments are based on the 

findings from our October 2005 report, Higher Education: Federal 

Science, Technology, Engineering, and Mathematics Programs and 

Related Trends.

1

 Those findings were based on our review and analysis of

data from a variety of sources. For that report we (1) analyzed survey 

responses from 13 federal departments and agencies with STEM education 

 1

 GAO, Higher Education: Federal Science, Technology, Engineering, and Mathematics

Programs and Related Trends, GAO–06–114 (Washington, D.C.: Oct. 12, 2005). 

Page 1 GAO-06-702T 
programs;2

 (2) analyzed data on students and graduates from the 

Department of Education’s (Education) National Center for Education 

Statistics (NCES) and on employees from the Department of Labor’s 

(Labor) Bureau of Labor Statistics (BLS); (3) interviewed educators and 

administrators at eight colleges and universities, federal agency officials, 

and representatives from associations and education organizations; 

(4) conducted interviews via e-mail with 31 students from five universities 

we visited; and (5) reviewed reports on various topics related to STEM 

education and occupations. 3 For this testimony, we provide updated 

information concerning the number of graduates in STEM and non-STEM 

fields as well as congressional legislation related to STEM education 

programs. Our work was conducted in accordance with generally 

accepted government auditing standards. 

In summary, our findings are as follows: 

• While postsecondary enrollment has increased over the past decade, the 

proportion of students obtaining degrees in STEM fields has fallen. In 

academic year 1994–1995, about 519,000 students obtained STEM degrees, 

about 32 percent of all degrees awarded. More students—approximately 

578,000—obtained STEM degrees in academic year 2003–2004, but such

degrees accounted for only 27 percent of those awarded. While the 

number of degrees obtained in some STEM fields increased, the number of 

degrees obtained in engineering, biological science, and certain technical 

fields declined. Further, despite increases in the overall enrollment and 

degree attainment by women and minorities at the graduate level, the 

number of graduate degrees conferred fell in several STEM-related fields 

from academic year 1994–1995 to academic year 2003–2004. College and 

university officials and students cited subpar teacher quality at the high 

school and college levels, poor high school preparation, more rigorous and 

expensive degree requirements for STEM majors, and lower pay of STEM

occupations relative to such fields as law and business as factors that 

discouraged students from pursuing degrees in STEM fields. Suggestions 

to encourage more enrollment in STEM fields include increased outreach 

 2

 The Department of Defense (DoD) did not submit a survey. According to DoD officials,

DoD needed 3 months to complete the survey and therefore could not provide responses

within the time frames of our work 

3

 For the purposes of this testimony, we will use the term “agency” when referring to any of 

the 13 federal departments and agencies that responded to our survey. 

Page 2 GAO-06-702T 
at the kindergarten through 12th grade level, increased mentoring, and a 

greater federal presence. 

• Coinciding with the spread of the Internet and the personal computer, 

the past decade has seen an increase in the overall number of STEM 

employees, particularly in mathematics and computer science. From 1994 

to 2003, overall employment in STEM fields increased by an estimated 23

percent, compared to an estimated 17 percent increase in non-STEM 

fields. Mathematics and computer science showed the highest increase in

STEM-related employment—estimated at 78 percent—while employment 

in science-related fields increased an estimated 20 percent. However, in 

certain STEM fields, including engineering, the number of employees did 

not increase significantly over the 1994–2003 period. Further, while the 

estimated number of women employed in STEM fields increased, there 

was not a significant change in the percentage they comprised. While the 

number of African-Americans and Hispanic-Americans employed in STEM 

fields increased from 1994 to 2003, minorities remained underrepresented 

relative to their numbers in the civilian labor force. Although foreign 

workers have filled more than 100,000 positions annually, many in STEM 

fields, through the H–1B visa program, employment levels declined in 2002 

and 2003 after several years of increases.4

 Key factors affecting STEM 

employment decisions include mentoring for women and minorities and 

opportunities abroad for foreign employees. 

• The federal government spent approximately $2.8 billion in fiscal year 

2004 to fund over 200 programs designed to increase the numbers of 

students in STEM fields and employees in STEM occupations and to 

improve related educational programs. Thirteen federal civilian agencies 

operated these programs, and most programs provided either financial 

support to individuals, particularly to students and scholars, or equipment, 

building, and other infrastructure support to institutions. The funding 

reported for individual STEM education programs varied significantly, 

from $4,000 for a U.S. Department of Agriculture-sponsored program to 

$547 million for a National Institutes of Health (NIH) grant program. 

However, only half of these programs had been evaluated or had 

evaluations underway, and coordination among STEM education programs 

was limited. As we note in our 2005 report, it is important to know the 

extent to which existing STEM education programs target the right people 

 4

 H–1B visas allow noncitizens to work in the United States. 

Page 3 GAO-06-702T 
and the right areas and make the best use of available resources before 

expanding federal support. 

Since our report was issued in October 2005, several initiatives to improve 

federal support have taken place. For example, Congress established 

National Science and Mathematics Access to Retain Talent (SMART) 

Grants to encourage students from low-income families to enroll in STEM 

fields and foreign languages critical to the national security of the United 

States. In addition, Congress established an Academic Competitiveness 

Council, chaired by the Secretary of Education, to identify, evaluate, 

coordinate, and improve federal STEM programs. Further, according to 

Education, the department plans to determine which federal programs 

work best for students and how to use taxpayers’ dollars more efficiently, 

as well has how to align programs with the accountability principles of the 

No Child Left Behind Act of 2001 (NCLBA).5

STEM fields include a wide range of disciplines and occupations, including 

agriculture, physics, psychology, medical technology, and automotive 

engineering. Many of these fields require completion of advanced courses 

in mathematics or science, subjects that are first introduced and 

developed at the kindergarten through 12th grade level. The federal 

government, universities and colleges, and other entities have taken steps 

to help improve achievement in these and other subjects through such 

actions as enforcement of NCLBA, which addresses both student and 

teacher performance at the elementary and secondary school levels, and 

implementation of programs to increase the numbers of women, 

minorities, and students with disadvantaged backgrounds in the STEM 

fields at postsecondary school levels and later in employment. 

Background 

The participation of domestic students in STEM fields—and in higher 

education more generally—is affected both by the economy and by 

demographic changes in the U.S. population. Enrollment in higher 

education has declined with upturns in the economy because of the 

increased opportunity costs of going to school when relatively high wages 

are available. The choice between academic programs is also affected by

the wages expected to be earned after obtaining a degree. Demographic 

 5

 Pub. L. No. 107-110 (2002). NCLBA amended and reauthorized the Elementary and 

Secondary Education Act—the largest and most comprehensive federal education law—

and focused on improving students’ academic performance.

Page 4 GAO-06-702T 
trends affect STEM fields because different races and ethnicities have had 

different enrollment rates, and their representation in the population is 

changing. In particular, STEM fields have had a relatively high proportion 

of white or Asian males, but the proportion of other minorities enrolled in

the nation’s public schools, particularly Hispanics, has almost doubled 

since 1972. Furthermore, as of 2002, American Indians, Asians, AfricanAmericans, Hispanics, and Pacific Islanders constituted 29 percent of all 

college students. 

Students and employees from foreign countries have pursued STEM 

degrees and worked in STEM occupations in the United States as well. To 

do so, these students and employees must obtain education or

employment visas.6

 Visas may not be issued to students for a number of 

reasons, including concerns that the visa applicant may engage in the

illegal transfer of sensitive technology. Many foreign workers enter the 

United States annually through the H–1B visa program, which assists U.S. 

employers in temporarily filling specialty occupations. Employed workers 

may stay in the United States on an H–1B visa for up to 6 years, and the 

current cap on the number of H–1B visas that can be granted is 65,000. The 

law exempts certain workers from this cap, including those in specified 

positions or holding a master’s degree or higher from a U.S. institution. 

The federal government also plays a role in helping coordinate federal 

science and technology initiatives. The National Science and Technology 

Council (NSTC) was established in 1993 and is the principal means for the 

Administration to coordinate science and technology policies. One 

objective of NSTC is to establish clear national goals for federal science 

and technology investments in areas ranging from information 

technologies and health research to improving transportation systems and 

strengthening fundamental research.

 6

 There are several types of visas that authorize people to study and work in the United 

States. F visas (student visas) are for study at 2- and 4-year colleges and universities and 

other academic institutions; J visas (exchange visitor visas) are for people who will be 

participating in a cultural exchange program; L visas (intracompany transferee visas) are 

for managerial positions and for those with specialized skills; and M visas are for 

nonacademic study, such as at vocational and technical schools. In addition, H–1B visas

allow noncitizens to work in the United States. 

Page 5 GAO-06-702T 
From the 1994–1995 academic year to the 2003–2004 academic year, the 

number of graduates with STEM degrees increased, but the proportion of 

students obtaining degrees in STEM fields fell. Teacher quality, academic 

preparation, collegiate degree requirements, and the pay for employment 

in STEM fields were cited by university officials and Education as factors 

affecting the pursuit of degrees in these fields. 

The Proportion of 

Students Obtaining 

Degrees in STEM

Fields Has Fallen, and 

Teacher Quality and 

High School 

Preparation Were 

Cited as Influential 

Factors 

Total Number of Graduates 

with STEM Degrees 

Increased, but Numbers 

Decreased in Some Fields, 

and Proportions of 

Minority Graduates at the 

Master’s and Doctoral 

Levels Did Not Change 

The number of graduates with degrees in STEM fields increased from 

approximately 519,000 to approximately 578,000 from the 1994–1995 

academic year to the 2003–2004 academic year. However, during this same 

period, the number of graduates with degrees in non-STEM fields 

increased from about 1.1 million to 1.5 million. Thus, the percentage of 

students with STEM degrees decreased from about 32 percent to about 

27 percent of total graduates. The largest increases at the bachelor’s and 

master’s levels were in mathematics and the computer sciences, and the 

largest increase at the doctoral level was in psychology. However, the

overall number of students earning degrees in engineering decreased in 

this period, and the number of students earning doctoral degrees in the 

physical sciences and bachelor’s degrees in technology-related fields, as 

well as several other fields, also declined. Figure 1 shows the number of 

graduates for STEM and non-STEM fields in the 1994–1995 through 2003–

2004 academic years. 

Page 6 GAO-06-702T 
Figure 1: Number of Graduates in STEM and Non-STEM Fields, 1994–1995 through 

2003–2004 Academic Years

Note: Information for academic year 1998–1999 was not reported by IPEDS. 

From the 1994–1995 academic year to the 2002–2003 academic year, the 

proportion of women earning degrees in STEM fields increased at the 

bachelor’s, master’s, and doctoral levels, and the proportion of domestic 

minorities increased at the bachelor’s level. Conversely, the total number 

of men graduates decreased, and the proportion of men graduates 

declined in the majority of STEM fields at all educational levels in this 

same period. However, men continued to constitute over 50 percent of the 

graduates in most STEM fields. The proportion of domestic minorities 

increased at the bachelor’s level but did not change at the master’s or 

doctoral level. In the 1994–1995 and 2002–2003 academic years, 

international students earned about one-third or more of the degrees at 

both the master’s and doctoral levels in engineering, math and computer 

science, and the physical sciences. 

Page 7 GAO-06-702T 
Teacher Quality,

Mathematics and Science 

Preparation, and Other 

Factors Were Cited as Key 

Influences on Domestic 

Students’ STEM 

Participation Decisions 

University officials told us and researchers reported that the quality of 

teachers in kindergarten through 12th grades and the levels of 

mathematics and science courses completed during high school affected 

students’ success in and decisions about pursuing STEM fields. University 

officials said that some teachers were unqualified and unable to impart the 

subject matter, causing students to lose interest in mathematics and 

science. In 2002, Education reported that, in the 1999–2000 school year, 

45 percent of the high school students enrolled in biology/life science 

classes and approximately 30 percent of those enrolled in mathematics, 

English, and social science classes were instructed by teachers without a 

major, minor, or certification in these subjects—commonly referred to as

“out-of-field” teachers.7

 Also, states reported that the problem of 

underprepared teachers was worse on average in districts that serve large 

proportions of high-poverty children.

In addition to teacher quality, students’ high school preparation in 

mathematics and science was cited by university officials and researchers 

as a factor that influenced students’ participation and success in the STEM 

fields. For example, university officials said that, because many students 

had not taken higher-level mathematics and science courses such as 

calculus and physics in high school, they were immediately behind other 

students. A study of several hundred students who had left the STEM 

fields reported that about 40 percent of those college students who left the

science fields reported some problems related to high school science 

preparation.8

Several other factors were cited by university officials, students, and 

others as influencing decisions about participation in STEM fields. These 

factors included the relatively low pay in STEM occupations, additional 

tuition costs to obtain STEM degrees, and the availability of mentoring, 

especially for women and minorities, in the STEM fields. For example, 

officials from five universities told us that low pay in STEM occupations

relative to other fields such as law and business dissuaded students from 

pursuing STEM degrees. Also, in a study that solicited the views of college

 7

 National Center for Education Statistics, Qualifications of the Public School Teacher

Workforce: Prevalence of Out-of-Field Teaching 1987–88 to 1999–2000, May 2002, revised 

August 2004, Washington, D.C. 

8

 The student study results are from Seymour, Elaine, and Nancy M. Hewitt, Talking about 

Leaving: Why Undergraduates Leave the Sciences, Westview Press, 1997, Boulder,

Colorado. 

Page 8 GAO-06-702T 
students who left the STEM fields as well as those who continued to 

pursue STEM degrees, researchers found that students experienced 

greater financial difficulties in obtaining their degrees because of the extra 

time needed to obtain degrees in certain STEM fields.9

University officials, students, and other organizations suggested a number 

of steps that could be taken to encourage more participation in the STEM

fields. University officials and students suggested more outreach, 

especially to women and minorities from kindergarten through the 12th

grade. One organization, Building Engineering and Science Talent (BEST), 

suggested that research universities increase their presence in prekindergarten through 12th grade mathematics and science education in 

order to strengthen domestic students’ interests and abilities. In addition, 

the Council of Graduate Schools called for a renewed commitment to 

graduate education by the federal government through actions such as 

providing funds to support students trained at the doctoral level in the 

STEM fields and expanding participation in doctoral study in selected 

fields through graduate support awarded competitively to universities 

across the country. University officials suggested that the federal 

government could enhance its role in STEM education by providing more 

effective leadership through developing and implementing a national 

agenda for STEM education and increasing federal funding for academic 

research. 

Although the total number of STEM employees increased from 1994 to 

2003, particularly in mathematics and computer science, there was no 

evidence that the number of employees in engineering and technologyrelated fields did. University officials, researchers, and others cited the 

availability of mentors as having a large influence on the decision to enter 

STEM fields and noted that many students with STEM degrees find 

employment in non-STEM fields. The number of foreign workers declined 

in STEM fields, in part because of declines in enrollment in U.S. programs 

resulting from difficulties with the U.S. visa system. Key factors affecting 

STEM employment decisions include the availability of mentors for 

women and minorities and opportunities abroad for foreign workers. 

STEM Employment 

Rose in Math and 

Science, but There Is 

No Evidence of an 

Increase in 

Engineering or 

Technology 

 9

 Seymour, Elaine, and Nancy M. Hewitt, Talking about Leaving: Why Undergraduates 

Leave the Sciences, Westview Press, 1997, Boulder, Colorado. 

Page 9 GAO-06-702T 
STEM Employment Rose 

Relative to Non-STEM 

Employment, but in STEM 

Fields the Proportion of 

Women Remained about 

the Same, Minorities 

Continued to be 

Underrepresented, and the 

Number of Foreign 

Workers Declined 

From 1994 to 2003, employment in STEM fields increased from an 

estimated 7.2 million to an estimated 8.9 million—representing a 

23 percent increase, as compared to a 17 percent increase in non-STEM 

fields. While the total number of STEM employees increased, this increase

varied across STEM fields. Coinciding with the spread of the Internet and

the personal computer, employment increased by an estimated 78 percent 

in the mathematics/computer sciences fields and by an estimated 

20 percent in the sciences. There was no evidence that the number of 

employees in the engineering and technology-related fields increased. 

Further, a 2006 National Science Foundation report found that about twothirds of employees with degrees in science or engineering were employed

in fields somewhat or not at all related to their degree. 10 Figure 2 shows 

the estimated number of employees in STEM fields. 

 10 National Science Foundation, Science and Engineering Indicators 2006, Volume 1, 

National Science Board, January 13, 2006. 

Page 10 GAO-06-702T 
Figure 2: Estimated Numbers of Employees in STEM Fields from Calendar Years 

1994 through 2003

0.0

0.5

1.0

1.5

2.0

2.5

3.0

3.5

1994 1995 1996 1997 1998 1999 2000 2001 2002 2003

Number of employees (in millions)

Source: GAO calculations based upon CPS data.

Calendar year

Science

Technology

Engineering

Mathematics/computer sciences

Note: Estimated numbers of employees have confidence intervals of within +/– 9 percent of the 

estimate itself. 

Women and minorities employed in STEM fields increased between 1994 

and 2003, and the number of foreign workers declined. While the 

estimated number of women employees in STEM fields increased from 

about 2.7 million to about 3.5 million in this period, this did not result in a 

change in the proportion of women employees in the STEM fields relative 

to men. Specifically, women constituted an estimated 38 percent of the 

employees in STEM fields in 1994 and an estimated 39 percent in 2003, 

compared to 46 and 47 percent of the civilian labor force in 1994 and 2003, 

respectively. The estimated number of minorities employed in the STEM 

fields as well as the proportion of total STEM employees they constituted 

increased, but African-American and Hispanic employees remained 

underrepresented relative to their percentages in the civilian labor force. 

For example, in 2003, Hispanic employees constituted an estimated 10 

percent of STEM employees compared to about 13 percent of the civilian

labor force. Foreign workers traditionally had filled hundreds of 

thousands of positions, many in STEM fields, through the H–1B visa 

Page 11 GAO-06-702T 
program. In recent years, these numbers have declined in certain fields. 

For example, the number of approvals for systems analysis/programming 

positions decreased from about 163,000 in 2001 to about 56,000 in 2002.11

Key Factors Affecting 

STEM Employment 

Decisions Include 

Mentoring for Women and 

Minorities and 

Opportunities Abroad for 

Foreign Employees

University officials and congressional commissions noted the important 

role that mentors play in encouraging employment in STEM fields and that 

this was particularly important for women and minorities.12 One professor 

said that mentors helped students by advising them on the best track to 

follow for obtaining their degrees and achieving professional goals. In 

September 2000, a congressional commission reported that women were 

adversely affected throughout the STEM education pipeline and career 

path by a lack of role models and mentors.13

University officials and education policy experts told us that competition 

from other countries in educational or work opportunities and the more 

strict U.S. visa process since September 11, 2001, affected international 

employee decisions about studying and working in the United States. For 

example, university officials told us that students from several countries, 

including China and India, were being recruited by universities and 

employers in both their own countries and other countries as well as the 

United States. They also told us that they were also influenced by the 

perceived unwelcoming attitude of Americans and the complex visa 

process. 

GAO has reported on several aspects of the visa process and has made 

several recommendations for improving federal management of the 

process. In 2002, we cited the need for a clear policy on how to balance 

national security concerns with the desire to facilitate legitimate travel 

when issuing visas.14 In 2005, we reported a significant decline in certain 

 11 GAO, H–1B Foreign Workers: Better Tracking Needed to Help Determine H–1B

Program’s Effects on U.S. Workforce, GAO–03–883 (Washington, D.C.: Sept. 10, 2003). 

12 GAO, Gender Issues: Women's Participation in the Sciences Has Increased, but 

Agencies Need to Do More to Ensure Compliance with Title IX, GAO–04–639 (Washington,

D.C.: Jul. 22, 2004). 

13 Report of the Congressional Commission on the Advancement of Women and Minorities

in Science, Engineering and Technology Development, Land of Plenty: Diversity as

America’s Competitive Edge in Science, Engineering, and Technology, September 2000. 

14 GAO, Border Security: Visa Process Should Be Strengthened as an Antiterrorism Tool, 

GAO–03–132NI (Washington, D.C.: Oct. 21, 2002). 

Page 12 GAO-06-702T 
visa processing times and in the number of cases pending more than 60 

days, and we also reported that in some cases science students and 

scholars can obtain a visa within 24 hours.15 However, in 2006, we found 

that new policies and procedures since the September 11 attacks to 

strengthen the security of the visa process and other factors have resulted

in applicants facing extensive wait times for visas at some consular posts.16

Officials from 13 federal civilian agencies reported spending about 

$2.8 billion in fiscal year 2004 for 207 education programs designed to 

support STEM fields, but they reported little about the effectiveness of 

these programs.17 Although evaluations had been done or were under way 

for about half of the programs, little is known about the extent to which 

most STEM programs are achieving their desired results. Furthermore, 

coordination among the federal STEM education programs has been 

limited. However, in 2003, the National Science and Technology Council 

formed a subcommittee to address STEM education and workforce policy 

issues across federal agencies, and Congress has introduced new STEM 

initiatives as well. 

More than 200 Federal 

Education Programs 

Exist to Promote 

STEM Careers, but 

Evaluation and 

Coordination Are 

Lacking 

 15 GAO, Border Security: Streamlined Visas Mantis Program Has Lowered Burden on

Foreign Science Students and Scholars, but Further Refinements Needed, GAO–05–198 

(Washington, D.C.: Feb. 18, 2005). 

16 GAO, Border Security: Reassessment of Consular Resource Requirements Could Help

Address Visa Delays, GAO–06–542T (Washington, D.C.: Apr. 4, 2006). 

17 GAO asked agencies to include STEM and related education programs with one or more

of the following as the primary objective: (1) attract and prepare students at any education 

level to pursue coursework in STEM areas, (2) attract students to pursue degrees (2-year 

degrees through postdoctoral degrees) in STEM fields, (3) provide growth and research 

opportunities for college and graduate students in STEM fields, (4) attract graduates to

pursue careers in STEM fields, (5) improve teacher (pre-service, in-service, and 

postsecondary) education in STEM areas, and (6) improve or expand the capacity of 

institutions to promote or foster STEM fields. The Department of Labor’s programs did not 

meet our selection criteria for STEM programs, and, as noted above, the Department of

Defense did not submit a survey. 

Page 13 GAO-06-702T 
Officials from 13 federal civilian agencies reported that approximately $2.8 

billion was spent in fiscal year 2004 on 207 STEM education programs.18

The funding levels for STEM education programs among the agencies 

ranged from about $998 million for the National Institutes of Health to 

about $4.7 million for the Department of Homeland Security, and the 

numbers of programs ranged from 51 to 1 per agency, with two agencies—

NIH and the National Science Foundation—administering nearly half of 

the programs. Most STEM education programs were funded at $5 million 

or less, but 13 programs were funded at more than $50 million, and the 

funding reported for individual programs varied significantly. For 

example, one Department of Agriculture-sponsored scholarship program 

for U.S. citizens seeking bachelor’s degrees at Hispanic-serving institutions 

was funded at $4,000, and one NIH grant program designed to develop and 

enhance research training opportunities was funded at about $547 million. 

Figure 3 shows the funding and number of STEM education programs by 

federal civilian agency. 

Federal Civilian Agencies 

Reported Spending 

Billions for Over 200 STEM 

Education Programs in 

Fiscal Year 2004 and that 

Evaluations Were 

Completed or Under Way 

for About Half 

 18 The program funding levels, as provided by agency officials, contain both actual and

estimated amounts for fiscal year 2004. 

Page 14 GAO-06-702T 
Figure 3: Federal STEM Education Programs and Funding by Agency, Fiscal Year 

2004 

According to the agency responses to GAO’s survey, most STEM education 

programs had multiple goals, and one goal was to attract students or 

graduates to pursue STEM degrees and occupations. Many STEM 

programs also were designed to provide student research opportunities, 

provide support to educational institutions, or improve teacher training. In

order to achieve these goals, many of the programs were targeted at 

multiple groups and provided financial assistance to multiple 

beneficiaries. STEM education programs most frequently provided 

financial support for students or scholars, and several programs provided 

assistance for teacher and faculty development as well. U.S. citizenship or 

permanent residence was required for the majority of programs. Table 1 

presents the most frequent program goals and types of assistance 

provided. 

Page 15 GAO-06-702T 
Table 1: Most Frequent Federal Program Goals and Types of Assistance Provided

Most frequent program goals (in 

descending order) 

Most frequent types of assistance (in

descending order) 

•Attract students to pursue degrees (2-year 

through Ph.D.) 

•Attract graduates to pursue careers in 

STEM fields 

•Attract and prepare students at any 

education level to pursue coursework in 

STEM areas 

•Provide growth and research opportunities 

for undergraduate and graduate students in 

STEM fields 

•Improve or expand the capacity of 

institutions to promote or foster STEM fields

•Improve teacher education in STEM areas

•Financial support for students or scholars 

•Support for teacher and faculty 

development 

•Institutional support to improve 

educational quality 

•Institutional physical infrastructure support

Source: GAO survey responses from 13 federal agencies. 

Note: Information on program goals and types of assistance was not provided by the Department of 

Defense.

Agency officials reported that evaluations—which could play an important 

role in improving program operations and ensuring an efficient use of 

federal resources—had been completed or were under way for about half

of the STEM education programs. However, evaluations had not been 

done for over 70 programs that were started before fiscal year 2002, 

including several that had been operating for over 15 years. For the 

remaining over 30 programs that were initially funded in fiscal year 2002

or later, it may have been too soon to expect evaluations. 

Federal Coordination Has 

Been Limited, but a 

Federal Group Was 

Established in 2003 to Help 

Coordinate STEM 

Education Programs 

among Federal Agencies 

Coordination of federal STEM education programs has been limited. In 

January 2003, the National Science and Technology Council’s Committee 

on Science (COS) established a subcommittee on education and 

workforce development. According to its charter, the subcommittee is to 

address education and workforce policy issues and research and 

development efforts that focus on STEM education issues at all levels, as 

well as current and projected STEM workforce needs, trends, and issues. 

The subcommittee has working groups on (1) human capacity in STEM 

areas, (2) minority programs, (3) effective practices for assessing federal 

efforts, and (4) issues affecting graduate and postdoctoral researchers. 

NSTC reported that, as of June 2005, the subcommittee had a number of 

accomplishments and had other projects under way related to attracting 

students to STEM fields. For example, it had surveyed federal agency 

Page 16 GAO-06-702T 
education programs designed to increase the participation of women and 

underrepresented minorities in STEM studies, and it had coordinated the 

Excellence in Science, Technology, Engineering, and Mathematics 

Education Week activities, which provide an opportunity for the nation’s 

schools to focus on improving mathematics and science education. In 

addition, the subcommittee is developing a Web site for federal 

educational resources in STEM fields and a set of principles that agencies 

could use in setting levels of support for graduate and postdoctoral 

fellowships and traineeships. 

Congress Created New 

Grants to Help Needy 

Students Obtain STEM 

Degrees and Established a 

Council to Determine the 

Effectiveness of Federal 

STEM Programs and 

Provide Coordination 

In passing the Deficit Reduction Act of 2005,19 Congress created a new 

source of grant aid for students pursuing a major in the physical sciences,

the life sciences, the computer sciences, mathematics, technology, 

engineering, or a foreign language considered critical to the national 

security of the United States. These National Science and Mathematics 

Access to Retain Talent Grants—or SMART Grants—provide up to $4,000 

for each of 2 academic years for eligible students. Eligible students are 

those who are in their third or fourth academic year of a program of 

undergraduate education at a 4-year degree-granting institution, have 

maintained a cumulative grade point average of 3.0 or above, and meet the 

eligibility requirements of the federal government’s need-based Pell Grant 

program.20 Education expects to provide $790 million in SMART Grants to 

over 500,000 students in academic year 2006–2007. 

Congress also established an Academic Competitiveness Council in 

passing the Deficit Reduction Act of 2005. The council is composed of 

officials from federal agencies with responsibilities for managing existing 

federal programs that promote mathematics and science and is chaired by

the Secretary of Education. Among the statutory duties of the council are 

to (1) identify all federal programs with a mathematics and science focus, 

(2) identify the target populations being served by such programs, (3) 

determine the effectiveness of such programs, (4) identify areas of overlap 

or duplication in such programs, and (5) recommend ways to efficiently 

integrate and coordinate such programs. Congress also charged the 

council to provide it with a report of its findings and recommendations by 

early 2007. In an April 2006 hearing before the House Committee on 

 19 Pub. L. No. 109–171 (2006). 

20 The Federal Pell Grant Program promotes access to postsecondary education by

providing need-based grants to low-income students.

Page 17 GAO-06-702T 
Education and the Workforce, the Secretary of Education testified that she 

and President Bush convened the first meeting of the council on March 6,

2006. 

While the total numbers of STEM graduates have increased, some fields 

have experienced declines, especially at the master’s and doctoral levels. 

Given the trends in the numbers and percentages of graduates with STEM 

degrees—particularly advanced degrees—and recent developments that 

have influenced international students’ decisions about pursuing degrees 

in the United States, it is uncertain whether the number of STEM 

graduates will be sufficient to meet future academic and employment 

needs and help the country maintain its technological competitive 

advantage. Moreover, although international graduate applications 

increased in academic year 2005–2006 for the first time in 3 years, it is too 

early to tell if this marks the end of declines in international graduate 

student enrollment. In terms of employment, despite some gains, the 

percentage of women in the STEM workforce has not changed 

significantly, minority employees remain underrepresented relative to 

their employment in the civilian labor force, and many graduates with 

degrees in STEM fields are not employed in STEM occupations. Women 

now outnumber men in college enrollment, and minority students are 

enrolling in record high levels at the postsecondary level as well. To the 

extent that these populations have been historically underrepresented in

STEM fields, they provide a yet untapped source of STEM participation in

the future. 

Concluding 

Observations 

To help improve the trends in the numbers of graduates and employees in

STEM fields, university officials and others made several suggestions, such 

as increasing the federal commitment to STEM education programs. 

However, before expanding the number of federal programs, it is 

important to know the extent to which existing STEM education programs 

are appropriately targeted and making the best use of available federal 

resources—in other words, these programs must be evaluated—and a 

comprehensive evaluation of federal programs is currently nonexistent. 

Furthermore, the recent initiatives to improve federal coordination, such

as the American Competitiveness Council, serve as an initial step in 

reducing unnecessary overlap between programs, not an ending point. In 

an era of limited financial resources and growing federal deficits, 

information about the effectiveness of these programs can help guide 

policymakers and program managers in coordinating and improving 

existing programs as well as determining areas in which new programs are 

needed. 

Page 18 GAO-06-702T 
Mr. Chairman, this concludes my prepared statement. I would be pleased

to respond to any questions that you or other members of the Committee 

may have. 

For further contacts regarding this testimony, please call Cornelia M. 

Ashby at (202) 512–7215. Individuals making key contributions to this 

testimony include Jeff Appel (Assistant Director), Jeff Weinstein (Analystin-Charge), Carolyn Taylor, Tim Hall, Mark Ward, John Mingus, and 

Katharine Leavitt. 

GAO Contact and 

Acknowledgments 

Page 19 GAO-06-702T 
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