United States Government Accountability Office

Washington, DC 20548 

May 16, 2007 

Subject: MSHA’s Revised Hiring Process Has Improved the Agency’s Recruiting 

Efforts, but Its Human Capital Strategic Plan Does Not Adequately Project or 

Address Its Future Workforce Needs

Congressional Requesters 

In 2003, GAO recommended that the Mine Safety and Health Administration (MSHA) 

develop a plan for addressing anticipated shortages in the number of qualified 

inspectors due to upcoming retirements, including considering options such as 

streamlining the agency’s hiring process and offering retention bonuses.1

 As you 

requested, we conducted follow-up work on the implementation of this 

recommendation. We reviewed MSHA’s human capital planning documents and 

obtained data on the number of inspectors employed by MSHA and the number of 

them eligible for retirement. In addition, we interviewed officials responsible for 

MSHA’s human resources department, officials in MSHA’s district offices, and 

officials at the National Mine Health and Safety Academy. We completed our work 

between June 2006 and March 2007 in accordance with generally accepted 

government auditing standards. 

In 2004, MSHA began a new process for hiring mine inspectors under the auspices of 

the Federal Career Intern Program (FCIP)—a federal program designed to recruit and 

retain high caliber candidates and develop their professional abilities. The use of the 

FCIP has led to a number of improvements in inspector recruiting and hiring, such as 

being able to identify applicants with the basic skills needed to be a successful 

inspector early in the process and decreasing the time it takes the agency to hire new 

inspectors. Since MSHA began using the program, the agency has hired 236 new coal 

mine inspector trainees. 

However, while MSHA has taken significant steps to improve its hiring process, the 

agency’s human capital plan does not include a strategic approach for addressing the 

large number of retirements expected in the next 5 years. MSHA estimates that over 

40 percent of its inspectors will be eligible for retirement by 2012. District officials 

expressed concerns about the impact that losing experienced inspectors may have on 

the agency’s ability to achieve its goals, particularly completing required safety and 

health inspections on time. We are recommending that MSHA engage in a strategic 

planning effort that utilizes the data it collects on expected retirements and actual 

attrition to develop goals that can be monitored and evaluated. 

 

1

GAO, Mine Safety: MSHA Devotes Substantial Efforts to Ensuring the Safety and Health of Coal Miners, but Its 

Programs Could Be Strengthened, GAO-03-945 (Washington, D.C.: Sept. 5, 2003). 
Background 

Mine safety and health inspectors carry out the day-to-day responsibility of ensuring 

that underground coal mines are safe and hazard-free workplaces. The Federal Mine 

Safety and Health Act of 1977, as amended (the Mine Act) requires that 

representatives of MSHA conduct frequent inspections and investigations in coal and 

other mines each year for the purpose of 

• obtaining, utilizing, and disseminating information relating to health and 

safety conditions; the causes of accidents; and the causes of diseases and 

physical impairments originating in such mines; 

• gathering information with respect to mandatory health or safety 

standards; 

• determining whether an imminent danger exists; and 

• determining whether there is compliance with the mandatory health or 

safety standards detailed in the act, or with citations, orders, or decisions 

issued under the act. 

For underground coal mines, MSHA is required to inspect each mine in its entirety at 

least four times a year. The agency also has the authority to conduct more frequent 

inspections for some mines, such as those that liberate excessive quantities of

methane or other explosive gases. It is the job of the inspectors to conduct these 

inspections and issue citations for any violations of the health and safety standards. 

Inspectors are granted a great deal of responsibility and ultimately have the authority 

to interrupt a mine’s production in certain circumstances. 

The Mine Act outlines the qualifications each mine inspector must possess: 

• practical experience in mining, 

• experience as a practical mining engineer, or 

• education. 

In addition, 5 years of practical experience is preferred, but not required.2

As we identified in our 2003 report, the inspector workforce is in a state of transition. 

At the time of that report, we recommended that MSHA develop a plan for addressing 

anticipated shortages in the number of qualified inspectors due to upcoming 

retirements. As a part of that recommendation, we suggested that the agency 

consider options such as streamlining its hiring process and offering retention 

 

2

An associate solicitor of the Department of Labor issued a memorandum in 1991 analyzing the statutory 

qualification requirements for inspectors. He concluded that the 5 year requirement, which is qualified by the 

statement “to a maximum extent feasible,” is not an absolute requirement. Therefore, MSHA can appoint 

individuals who lack 5 years of experience but meet one of the three qualifications noted above. 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 2 
bonuses. This recommendation stemmed from the finding that, at that time, between 

20 and 86 percent of the underground coal mine inspectors in the agency’s 11 districts 

were eligible for retirement within 5 years—an average of 44 percent across all of the 

districts. In addition to the anticipated turnover in experienced inspectors, the 

officials we talked with at that time reported difficulty in hiring new inspectors 

quickly and training them to replace outgoing staff. 

MSHA Developed a Strategic Approach to Hire Mine Inspectors 

In 2004, MSHA began using the FCIP to hire new mine inspectors. Since it began 

using the program, MSHA has hired 301 interns, 236 of whom are coal mine inspector 

trainees.3

 The FCIP requires agencies to determine how the program can be used to 

fulfill recruitment needs for particular occupations, and develop procedures for 

accepting applications, evaluating, and selecting candidates. They also must 

implement a formal training program for the interns and monitor program activities. 

MSHA’s use of this program has led to a number of improvements in its hiring 

practices. 

Through the FCIP, MSHA developed a process for assessing applicants’ skills, 

conducting interviews, and providing applicants with immediate feedback on their 

aptitude during 1-day job fairs held in locations around the country. As of October 

2004, all applicants for inspector positions must attend job fairs, where they are 

tested on basic math and writing skills. In order to interview with MSHA for the 

positions, applicants must pass these standardized exams. MSHA reported that this 

screening process has helped the agency maximize its resources, since the exams 

identify at an early stage applicants who do not have the basic skills needed to 

become a successful inspector. For example, of the 1,256 applicants tested in 2005 

and 2006, 49 percent failed either the math or written exam, or both. 

In comparison, MSHA’s previous hiring process limited its ability to assess the skills 

and abilities of applicants for mine inspector positions. MSHA officials explained 

that, under the old process, applicants were ranked by experience, and their basic 

skills were not considered. For example, they explained that the agency hired people 

with considerable mining experience, but some of them had weak reading and writing 

skills. As a result, MSHA spent time during new mine inspector training teaching 

these basic skills. A skills inventory conducted by the Department of Labor in fiscal 

year 2003 identified the need to close the competency gaps in the mine safety and 

health inspector workforce in three areas: oral communication; writing; and legal, 

government, and jurisprudence.4

 The new assessment process used during the job 

fairs is a step toward ensuring that MSHA’s inspectors have a standard level of 

proficiency. 

 

3

These data are as of February 2007. The non coal interns were hired as inspector trainees for metal/nonmetal 

mining operations. Metal and nonmetal mining is separated into four broad categories: metal, nonmetal, stone, 

and sand and gravel. 

4

Labor defined the “legal, government, and jurisprudence” area as knowledge of laws, legal codes, court 

procedures, precedents, legal practices and documents, government regulations, executive orders, agency rules, 

government organization and functions, and the democratic political process.

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 3 
Applicants that successfully complete the math and written exams move on to a 

structured interview with a panel of MSHA officials that includes an administrative 

official, such as someone from human resources, and one supervisory or 

management official. During the interviews, the same questions are posed to all 

applicants at each job fair in the same order. The questions assess, among other 

things, the applicant’s general skills in areas such as problem solving, interpersonal 

skills, and oral communication. In addition, applicants for higher paying positions are 

asked about their knowledge of and experience in mining, including experience with 

inspections and knowledge of the laws and regulations governing mines. 

Under its new approach, MSHA has been able to reduce the amount of time it takes to 

hire a new mine inspector. Under the old hiring process, MSHA officials reported that 

it often took up to 180 days to hire an inspector. Now, agency officials reported that 

they have reduced the hiring time to 45 days or less.5

 In addition, the Office of 

Personnel Management approved MSHA’s request to hire mine inspectors through the 

FCIP under a broader range of pay scale levels, which allows the agency to hire 

individuals with a broader range of experiences.6

 For example, an applicant might 

have little experience in mining but possess relevant experience in construction and 

electrical engineering. This applicant would be hired as a mine inspector trainee at 

the lower end of the pay scale and given additional training in areas specific to mine 

health and safety. Similarly, MSHA can hire highly experienced applicants, such as 

those with knowledge of progressive mining methods, at the higher end of the pay 

scale as an incentive to attract these candidates. 

In addition, MSHA officials commented that the job fairs have helped the agency 

reduce the number of interagency transfers that occurred under its old hiring 

process, which was a significant problem. According to these officials, because 

applicants from any location could apply for positions in any MSHA district office, 

they often applied for a position in one location and then, shortly after being hired, 

applied for a transfer to the area where they lived. Now, however, since job fairs are 

held in the locations where applicants are being sought and applicants must attend 

the job fairs in person, they tend to live in those communities and are less likely to 

request a transfer to another location once they are hired.7

Appointments to the FCIP are generally for 2 years, at which point the intern may be 

offered a permanent position. During the internship, new hires are required to 

participate in a formal training program. To meet this requirement, inspector trainees 

participate in training modules at the National Mine Health and Safety Academy—a 

training center run by MSHA that conducts a variety of education and training 

programs in health and safety and related subjects for federal mine inspectors and 

other government mining and industry personnel. Each module lasts for 3 to 4 weeks 

and is interspersed by periods of time when inspector trainees return to their districts 

for on-the-job training with experienced inspectors. Training classes include mine 

 

5

According to an MSHA human resources official, this time frame begins when an applicant receives a job offer 

and includes time for the agency to review the results from a medical exam and drug test. It does not include any

time that an applicant might be placed on a waiting list if the district does not have a job opening available. 

6

MSHA can offer new mine inspectors positions under the government general schedule (GS) that range from GS-5 

to GS-11. As of January 2007, the potential pay ranged from $25,623 to $61,068. 

7

For example, between October 2006 and April 2007, MSHA held job fairs in each of its 11 coal mine districts. 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 4 
rescue, accident prevention, investigations, inspection procedures, mine emergency 

procedures, mine technology, and management, among others. Some of the courses 

include practicing techniques in the Mine Academy’s mine lab to provide the new 

inspectors with training in a simulated mine environment. Mine Academy officials 

reported that new inspectors can complete the formal training in 11 months but are 

expected to continue with structured on-the-job training throughout the duration of 

their participation in the FCIP. Each inspector trainee also develops an Individual 

Development Plan, which guides and documents the training and development 

process. Inspectors with relatively little experience (and hired at the lower end of the 

pay scale) participate in the FCIP longer—3 years instead of 2 years—to give the 

agency time to assess their performance and knowledge before a decision is made on 

whether to convert them to permanent employee status. While the internship period 

serves to develop the inspectors, it also doubles as an opportunity to determine their 

quality and compatibility with the agency. Although new inspectors participate in a 2- 

to 3-year training program , district managers and Mine Academy officials agreed 

that, realistically, new inspectors can take up to 5 years to become fully competent 

and confident in their roles as underground coal mine inspectors. 

MSHA’s Human Capital Plan Does Not Adequately Project Its Workforce 

Needs 

While the improvements MSHA has made to its recruiting process are an important 

part of addressing impending retirements, the agency has not developed a long-term 

strategy for replacing mine inspectors. MSHA has developed a human capital 

strategic plan that declares it is designed to shift the basis of human resources 

planning from a reactive and passive model to a proactive competency-based model. 

However, according to our review of the plan and discussions with MSHA officials, 

the agency has not demonstrated how it plans to address the large number of 

retirements of its inspector workforce in the coming years. 

MSHA estimates that over 40 percent of its inspectors will be eligible for retirement

by 2012 (see table 1).8

 

8

MSHA faces similar shortages in its engineer and scientist workforce in coming years. See GAO, Mine Safety: 

Better Oversight and Coordination by MSHA and Other Federal Agencies Could Improve Safety for 

Underground Coal Miners, GAO-07-622 (Washington, D.C.: May 16, 2007). 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 5 
Table 1: Number of Underground Coal Mine Inspectors and Those Eligible for Retirement by 2012

District office 

1 2 3 4 5 6 7 8 9 10 11 Total

Number of 

underground coal 

mine inspectors 6 38 39 71 35 56 52 24 26 16 14 377 

Number of 

underground coal 

mine inspectors

eligible to retire

within 5 years 3 23 15 36 12 16 13 10 13 8 5 154 

Percentage 

eligible to retire

within 5 years 50% 61% 38% 51% 34% 29% 25% 42% 50% 50% 36% 41% 

Source: GAO analysis of MSHA data. 

Note: Data are as of January 31, 2007. 

MSHA reported that, in the last 3 years, between 32 and 47 percent of the coal mine 

enforcement employees eligible to retire actually did so in the first year of eligibility. 

Human resources officials explained some steps they are taking to monitor the 

retirements in each district, such as maintaining communication with the district 

managers so that, when a retirement is announced, the agency can authorize the 

district manager to begin the process to hire a candidate from the job fairs. In 

addition, these officials explained that MSHA is about to start a new program to 

prepare for the loss of supervisors and managers, which will consist of a 1-year 

training program. Despite these steps, the agency has not developed a strategic plan 

that demonstrates how it will address the challenges in a manner that is clearly linked 

to achieving its mission and goals. For example, the plan does not adequately take 

into account the potential increases in future hiring and the time necessary to fully 

train replacements. 

Further, district officials expressed concern over the retirements and loss of highly 

experienced coal mine inspectors, and the impact these challenges have on achieving 

the goals of the agency. For example, one district official told us that recent 

retirements have left the district short-handed and expressed concern over the 

inspectors’ ability to complete the required annual mine inspections on time.

MSHA officials told us they generally hire replacements only after a current inspector 

leaves, which prevents having a period of overlap during which experienced 

inspectors likely to retire soon and newly hired inspectors are both on board. They 

also said that, given the long time it takes to train new inspectors, having this overlap 

would assist them to better manage their workload because it would allow 

experienced inspectors to train their replacements before they retired. The officials 

explained that budget restrictions contribute to this approach. 

GAO has reported on effective strategies for workforce planning that require a more 

strategic outlook to meeting the challenges of the future and developing a process for 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 6 
monitoring and evaluating an agency’s goals.9

 Strategic human capital planning that is 

integrated with broader organizational strategic planning is critical in ensuring that 

agencies have the talent they need for future challenges, especially as the federal 

government faces a large wave of retirements. Among other elements, strategic 

planning serves as a tool to help agencies address challenges in a manner that is 

clearly linked to achieving their mission and goals. For example, GAO reported on an 

approach the Social Security Administration is using to mitigate the impact of

retirements on its workforce and broader agency goals. By using data to make longterm projections, the agency was able to design a transition program to ensure that 

experienced employees were available in critical areas of the agency and that the 

institutional knowledge would not be lost because of turnover. The agency revisits 

the projections on a regular basis and uses the information to address broader agency 

goals for improvement. 

Conclusions 

MSHA has taken significant steps to reform its process to recruit and hire new mine 

inspectors. However, the high attrition expected over the next 5 years, coupled with 

the amount of time needed to train new inspectors to become proficient at their 

duties, means the agency could jeopardize these successes without a clear and wellthought-out plan that addresses the expected turnover in its experienced workforce. 

While the agency has data on expected retirements and its recent attrition, it has not 

utilized this information in a strategic approach to prepare for the longer-term needs 

of the agency. Because MSHA does not utilize the data it already collects, and has not 

developed measurable goals, the agency’s ability to monitor and evaluate its progress 

toward meeting its human capital goals is inhibited. 

Recommendation for Executive Action 

Given the long lead time needed to train new inspectors to replace those retiring, 

MSHA needs to focus its planning efforts on estimating and managing the large 

number of expected retirements. To begin this process, we recommend that the 

agency engage in a strategic planning effort that utilizes the data it collects on 

expected retirements and actual attrition to develop goals that can be monitored and 

evaluated. 

Agency Comments 

We obtained comments on a draft of this report from MSHA. These comments are 

reproduced in appendix I. 

 

9

GAO, Human Capital: Federal Workforce Challenges in the 21st Century, GAO-07-556T (Washington, D.C.: March 

6, 2007); GAO, Human Capital: Key Principles for Effective Strategic Workforce Planning, GAO-04-39 

(Washington, D.C.: Dec. 11, 2003). 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 7 
In general, MSHA agreed that it can continue to enhance strategic planning in the 

area of human capital. However, in response to the number of retirements expected, 

MSHA officials commented that only 15 percent of its workforce will retire in the 

coming years. These data are based on calculations that factor in the entire 

underground coal inspector workforce, as opposed to just the number of inspectors 

eligible for retirement. Our analysis focused on the number of inspectors eligible for 

retirement who actually retired the first year they were eligible. We found that 

between 32 and 47 percent of retirement-eligible inspectors are likely to leave MSHA 

in the first year of eligibility. Therefore, MSHA’s succession planning should focus on 

the number of inspectors who are eligible for retirement over the next 5 years. 

Understanding this population will help the agency plan for the potential impact on 

its experienced workforce and allow the agency to identify the needs of the 

remaining workforce, such as training less experienced staff and identifying 

supervisors to replace those who leave. 

MSHA also stated in its response that the hiring of additional enforcement staff as a 

result of funds provided by an emergency supplemental appropriations bill passed in 

2006 will effectively reduce mass retirements because of the increased number of less 

tenured employees. In addition, MSHA commented that it conducts exhaustive 

reviews to identify where current and future vacancies exist and where industry 

shifts require MSHA to adjust its workforce. The agency also noted that it has 

planned its recruitment strategy to hire enough inspectors in fiscal year 2007 to 

mitigate the impact of expected retirements this year. While these actions are 

commendable, they are examples of actions that should be tied to specific, 

measurable goals in the agency’s strategic human capital plan. This would provide 

accountability and allow better oversight by entities such as GAO and the Congress. 

We are sending copies of this report to the Secretary of Labor, relevant congressional 

committees, and other interested parties. Copies will be made available to others 

upon request. In addition, the report will be available at no charge on GAO’s Web site 

at http://www.gao.gov. Please contact me at (202) 512-7215 if you or your staff have 

any questions about this report. Revae Moran, Assistant Director; Sara L. Schibanoff, 

Analyst-in-Charge; and Lerone C. Reid made key contributions to this report. Sheila 

R. McCoy provided legal assistance. 

Sincerely yours, 

Daniel Bertoni 

Director, Education, Workforce, 

and Income Security Issues 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 8 
List of Congressional Requesters 

The Honorable Robert C. Byrd 

Chairman 

Committee on Appropriations 

United States Senate 

The Honorable Edward M. Kennedy 

Chairman 

The Honorable Michael B. Enzi 

Ranking Member 

Committee on Health, Education, Labor, and Pensions 

United States Senate 

The Honorable Tom Harkin 

Chairman 

The Honorable Arlen Specter 

Ranking Member 

Subcommittee on Labor, Health and Human Services, Education, and 

 Related Agencies 

Committee on Appropriations 

United States Senate 

The Honorable Patty Murray 

Chair 

The Honorable Johnny Isakson 

Ranking Member 

Subcommittee on Employment and Workplace Safety 

Committee on Health, Education, Labor, and Pensions 

United States Senate 

The Honorable George Miller 

Chairman 

Committee on Education and Labor 

House of Representatives 

The Honorable John D. Rockefeller IV 

United States Senate 

The Honorable Shelley Moore Capito 

House of Representatives 

The Honorable Alan B. Mollohan 

House of Representatives 

The Honorable Nick Rahall 

House of Representatives 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 9 
Appendix I: Comments from the Department of Labor 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 10 
GAO-07-704R MSHA’s Mine I

nspector Recruiting and Workforce Planning Page 11 
(130653) 

GAO-07-704R MSHA’s Mine Inspector Recruiting and Workforce Planning Page 12 
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