Downsize the Government on All Levels - Reduce the Burden on the Taxpayers by Letting Us Keep More of Our Hard-Earned Wages and Decide for Ourselves How Best to Spend Our Income
By Chris Edwards, Cato Institute
August 2013
With projections of large federal deficits for years to come,
policymakers should scour the budget looking for places to cut spending.
One area to find savings is the generous compensation paid to the
federal government's 2.1 million civilian workers.
1
Total wages and benefits paid to executive branch civilians will be
about
$248 billion in 2013, indicating that compensation is a major
federal expense that can be trimmed.
2
During the last decade, compensation of federal employees rose faster
than compensation of private-sector employees. As a consequence,
the
average federal civilian worker now earns 74 percent more in wages and
benefits than the average worker in the U.S. private sector.
3
A job-to-job comparison found that federal workers earned higher wages
than did private-sector workers in four-fifths of the occupations
examined.
4
The federal workforce has become an elite island of secure and
high-paid workers, separated from the ocean of average American workers
competing in the global economy. Policymakers have taken actions in
recent years to partially freeze federal wages.
The next steps should be
to overhaul federal benefits and downsize the federal workforce through
program terminations and privatization.
In 2012 federal civilian workers had an average wage of $81,704, according to data from the U.S. Bureau of Economic Analysis.
5
By comparison,
the average wage of the nation's 104 million
private-sector workers was $54,995. Figure 1 shows average federal- and
private-sector wages since 2000.
When benefits such as health care and pensions are included, the
federal compensation advantage over private workers is even larger,
according to the BEA data. In 2012,
federal worker compensation averaged
$114,976, or 74 percent more than the private-sector average of
$65,917. Figure 2 shows that
average federal compensation has grown
rapidly over the last decade.
An analysis by
USA Today revealed
particularly fast wage growth at the top end of the federal workforce.
6
By 2009, there were 383,000 federal civilian workers with salaries of
more than $100,000, 66,000 with salaries of more than $150,000, and
22,000 with salaries of more than $170,000.
Rising federal compensation stems from legislated increases in
general pay, increases in locality pay, expansions in benefits, and
growth in the number of high-paid jobs as bureaucracies become more
top-heavy. Compensation growth is also fueled by
routine adjustments
that move federal workers into higher salary brackets regardless of
performance, and by federal jobs that are redefined upward into higher
pay ranges.
Politics also plays an important role. Federal workers are a powerful
special-interest group, and they are very effective lobbyists. Members
of Congress who have large numbers of federal workers in their districts
push relentlessly to expand pay and benefits. Another factor is that
the George W. Bush administration supported large pay increases for the
uniformed military, and that prompted federal unions to demand similarly
large increases for civilians.
Some people argue that the federal government has a unique high-end
workforce, which deserves to be paid handsomely. But let's consider some
ordinary and mundane offices in the U.S. Department of Agriculture.
In
2012, the USDA's Office of Communications employed 59 people and paid $8
million in wages and benefits. That works out to $136,000 each for
these public relations workers.7
Or consider that the 49 employees of the USDA's Office of Chief
Economist earned an average $184,000 each in wages and benefits in 2012.
8
It isn't just rocket scientists that are earning high federal
compensation, it is also workers in many run-of-the-mill bureaucratic
jobs.
More importantly, the federal workforce has always had a heavy
contingent of skilled professionals such as lawyers. So that does not
seem to explain the faster growth in federal compensation than private
compensation shown in Figures 1 and 2.
In 2000, the average federal
worker earned 50 percent more in total compensation than the average
private-sector worker. By 2012, that ratio had risen to 74 percent.9
Another way to evaluate federal pay is to compare average
compensation in 72 industries tracked by the U.S. Bureau of Economic
Analysis.
10
In 2008,
federal civilian workers had the seventh-highest average
compensation level of the 72 industries. The federal workforce had a
higher average compensation level than such high-skill industries as
computer systems design, chemical products, and legal services. See
these industry data
charted here.
In the past, there was a view that because it was a privilege for
citizens to serve the public in a federal agency, federal pay should be
fairly modest. Unfortunately, that sort of thinking has gone out the
window as the federal pay advantage continues to increase.
Despite the escalation of federal compensation, federal labor unions
and some government officials continue to claim that federal workers are
underpaid. Indeed, they claim that federal workers suffer from a large
"pay gap" with private-sector workers. The government's Federal Salary
Council releases an annual memo reporting on the size of the supposed
pay gap, which in 2009 was 26 percent.
11
The gap is supposed to be determined based on job-to-job comparisons,
but the results rest on calculations that are non-transparent and
subject to a large amount of statistical modeling.
One reason why the official pay gap results are suspicious is that
they don't square with Bureau of Economic Analysis data on overall pay
trends. The BEA data show that average federal wages have grown faster
than average private wages in most years, yet the official pay gap has
remained very large. The official pay gap was 22 percent in 2001 and 26
percent in 2009, thus supposedly indicating that federal workers became a
bit worse off relative to private-sector workers during that period.
12 Yet the BEA data show that average federal salaries rose 47 percent between 2000 and 2009, which was much faster than the 29 percent increase in the private sector. Since the BEA data are authoritative,
there must be something wrong with the official pay gap methodology.
The other problem with the official pay gap data is that simple
job-to-job comparisons show that federal workers are generally overpaid,
not underpaid. A recent
USA Today analysis of more than 200
occupations revealed that—rather than suffering from a 26 percent pay
gap in 2009—federal workers typically have wages 20 percent higher than
private-sector workers.
13
The analysis found that "federal employees earn higher average salaries
than private-sector workers in more than 8 out of 10 occupations...
accountants, nurses, chemists, surveyors, cooks, clerks, and janitors
are among the wide range of jobs that get paid more on average in the
federal government than in the private sector."
14 A
nd note that the USA Today analysis did not include benefits, which are very generous in the federal government.
Comparisons of federal and private pay often just look at wages and
do not consider the superior benefits received by government workers.
The Bureau of Economic Analysis provides data showing the average value
of federal and private-sector benefit packages.
15
In 2012, federal workers enjoyed average benefits of $33,271, which
compared to average benefits in the U.S. private sector of just $10,921.
That huge advantage stems both from more federal workers receiving
certain types of benefits and from particular federal benefits being
more lucrative than those available in the private sector.
Federal workers receive health insurance, retirement health benefits,
a pension plan with inflation protection, and a retirement savings plan
with a government match. They typically receive generous holiday and
vacation schedules, flexible work hours, training options, incentive
awards, generous disability benefits, and union protections.
Lily Garcia, a human resources specialist who contributes to the
Washington Post,
noted:
"The primary advantages of working for the federal government
are generous benefits, solid pay, and relative job security, a
combination that is challenging to find in the private sector, even in
the best of times.16
Garcia summarized the federal benefits package:
17
- "Health Care: The Federal Employee Health Benefits
Program offers the widest selection of health care plans of any U.S.
employer. Federal employees also have access to vision and dental plans,
life insurance, flexible spending accounts, and long-term care plans."
- "Paid Time Off: Federal employees enjoy liberal amounts of paid time
off, including 13 days of sick leave per year, 10 paid federal
holidays, and 13 to 26 days of paid vacation, depending on years of
service."
- "Retirement Benefits: Federal employees have access to retirement
benefits through the Civil Service Retirement System or the Federal
Employee Retirement System. Under both plans, retired employees receive
an annuity, which is complemented by Social Security benefits and
participation in the Thrift Savings Plan that offers 401(k)-type
investment options."
- "Family-Friendly Policies: Another notable benefit of federal
employment is family-friendly policies, including flexible work
schedules, telecommuting, part-time jobs, and job sharing. Not to
mention the fact that federal employees enjoy first priority and
subsidies at a number of top-notch day care facilities."
There is another important benefit of federal employment:
extremely high job security. U.S. Bureau of Labor Statistics data show
that the
rate of "layoffs and discharges" in the federal workforce is
just one-quarter of the rate in the private sector.
18 Only about 1 in 5,000 federal nondefense workers is fired for poor performance each year.19
It seems clear that federal wages and benefits have grown to
excessive levels in recent years.
But we can "market test" that
proposition by looking at the worker quit rate—at what rate do workers
voluntarily leave the federal government to take other jobs? It turns
out that the quit rate in the federal government is only one-quarter the
quit rate in the U.S. private sector.20
Federal workers know that they have a gold-plated compensation package
and high job security, which is hard to match in the private market, and
so they stay put.
It is often assumed that the federal government should have the
nation's highest-skilled workers, and that it should pay top dollar to
get them.
But federal hiring of the very best workers imposes an
"opportunity cost" on the economy by drawing talented people away from
higher-valued activities in the private sector. Unlike, say, France,
where the best university graduates historically have gone into
government, the United States has historically prospered because the
best and brightest have flocked to places such as Silicon Valley.
Federal pay should be reasonable, and we certainly need competent
workers in federal jobs, assuming that they are jobs that are really
required.
But the government industry shouldn't be one of the
highest-paid industries in the nation. Indeed, an advantage of reducing
federal pay would be to encourage more turnover in the currently very
static federal workforce. That would get more young and energetic people
in government, which would be a good thing.
Another way to help solve the federal pay problem would be to
privatize federal jobs where possible. For example, the average compensation of federal air traffic controllers is remarkably high.
21
Is it too high? We can find out by privatizing air traffic control—as
Canada has done—and let the market decide. Does the government pay
postal workers too much?
Let's privatize postal services—as Germany has
done—and let the market decide.
With regard to immediate policy reforms, Congress should overhaul the
federal benefits package to reduce costs. It should, for example,
phase-out defined-benefit pension plans, as most private-sector
employers have.
To deal with today's large budget deficits, we need to
restrain all areas of spending, and so it is reasonable to cut federal
pay packages and better align them with private-sector practices.
EDITOR'S NOTE:
The same holds true for salaries of local, county and state government employees over the past decade - compensation has risen faster than compensation of private-sector employees. Public sector workers across the board earn 40 percent or more higher wages than their private-sector counterparts; plus they have generous benefits packages and traditional pension plans that enable them to retire after 30 years of service, which are not available to the vast majority of private sector workers.