Temporary federal employment raises concern among lawmakers, unions
Seasonal workers don’t receive the same benefits as their permanent counterparts, witnesses say.
The overuse of temporary employees to perform seasonal work is unfair and inefficient, union leaders said on Wednesday.
In a hearing before the House Oversight and Government Reform Federal Workforce Subcommittee, witnesses told lawmakers that temporary employees are important to agencies' missions, but they also are difficult to retain because they don't receive the same benefits as permanent workers.
"This is not principally an issue of workers' rights, however, but rather federal efficiency and productivity," said Rep. Gerry Connolly, D-Va. "We must ensure agencies are offering basic benefits rather than long-term 'temporary' employment that does an injustice to both federal employees and taxpayers."
Agencies with changing seasonal needs can hire employees for short periods of time. Temporary appointments are intended for assignments of a year or less, though that term can be extended for an additional year. The Forest Service hires 15,000 temporary employees annually -- nearly 40 percent of its workforce. Hank Kashdan, the agency's associate chief, said the use of temporary workers allows flexibility to manage changing workloads. These employees, however, are not eligible for the same benefits as the permanent workforce.
Current law excludes temporary employees from health benefits, although after one year they are eligible to apply for coverage under the Federal Employee Health Benefits Program as long as they pay 100 percent of the cost. Temporary employees also are ineligible for the Federal Employees Group Life Insurance Program and coverage under the Civil Service Retirement System and the Federal Employees' Retirement System.
The lack of access to benefits lowers employee morale, leading to high turnover, said William Dougan, national president of the National Federation of Federal Employees. Agencies' inability to retain their workforce interrupts projects, limits long-term planning and places employee safety on the line, he added.
Seasonal employees at the National Park Service are hired under a competitive temporary authority, said Jerry Simpson, associate director for workforce management. The agency employs nearly 10,000 temporary workers annually. Lawmakers questioned whether agencies misuse the temporary hiring authority to avoid offering expensive benefits to a large number of employees.
Angela Bailey, deputy associate director for recruitment and diversity at the Office of Personnel Management, said she doesn't believe there have been any abuses of the authority, a claim Connolly said "stunned" him.
Lawmakers also expressed concern that the conversion of temporary personnel to career employees doesn't accurately reflect merit system principles, and experience as a seasonal worker isn't valued in the hiring process. But Bailey said that experience is valued no matter where it's gained.