ML070360219
| ML070360219 | |
| Person / Time | |
|---|---|
| Issue date: | 09/22/2010 |
| From: | Jun Lee NRC/OIP |
| To: | Commissioners NRC/OCM |
| Shared Package | |
| ML070360148 | List: |
| References | |
| Download: ML070360219 (14) | |
Text
FOR:
The Commissioners FROM:
Janice Dunn Lee, Director Office of International Programs
SUBJECT:
INCREASING U.S. REPRESENTATION FROM NRC ON THE IAEA STAFF PURPOSE:
This paper provides the Commission with information on the employment of NRC staff at the International Atomic Energy Agency (IAEA); the challenges to increasing IAEA employment of NRC staff as future opportunities become available; and steps being taken, or planned, by the staff in this area. With United States representation at the IAEA and other international organizations on a downward trend, the staff believes this is an appropriate time to inform the Commission of the issues and the opportunities available.
BACKGROUND:
In a May 2, 2006 letter to former Chairman Diaz, Secretary of State Condoleezza Rice emphasized the high priority that the Administration and the Congress place on equitable United States representation on the staffs of United Nations (UN) and other international organizations.
She further highlighted the Administrations desire to contribute to the effectiveness and efficiency of these organizations by drawing on the wide array of desirable skills, values and experiences Americans have to offer. This paper focuses on the IAEA, though NRC staff have also been employed at other international organizations.
Secretary Rices letter cites Executive Order 11552, which mandates that Federal agencies assist and encourage details and transfers of their employees to international organizations to the maximum extent possible, while considering potential impacts on human resources. She also noted that the Department of State reports annually to Congress on U.S. representation in many international organizations. She cautioned that U.S. representation has declined in recent years and that trend is likely to continue with the anticipated retirement of the baby boom generation. Consequently, Secretary Rice encouraged all Federal agencies to review detail and transfer practices to ensure that employment in international organizations is actively and positively promoted; examine reintegration policies and practices to optimize benefits of international experience to both agencies and employees; and raise U.S. representation issues CONTACT:
Jennifer Schwartzman, OIP 415-2317
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and concerns with senior officials of UN organizations at every opportunity. A copy of Secretary Rices letter is at Enclosure 1. Enclosure 2 shows recent U.S. representation figures at the IAEA.
Throughout its history, more than 30 NRC staff members have been employed at the IAEA in various capacities. These individuals served in regular budget staff, cost-free experts (CFEs) and shorter-term contract positions. Many current NRC staff have worked at the IAEA at various stages of their careers, and a number of former NRC staff are currently serving at the IAEA. Enclosure 3 provides a list of individuals in each category.
DISCUSSION:
NRC staff employment at the IAEA recently reached its lowest level in many years. This phenomenon has occurred at the same time the IAEA is placing an increasing emphasis on global standard-setting, which may conflict with U.S. practices and policy directions. NRC representation within the ranks of regular budget and CFE positions at the IAEA, along with regular NRC participation in Convention review meetings, technical and consultancy meetings to develop guidance, safety standards committee meetings, and missions to assess implementation of guidance, has enabled the NRC to play an important role in the international arena, reaching beyond the limitations of bilateral activities. In sharing its expertise, the NRC has demonstrated its commitment to developing and implementing sound international safety and security guidance and has established itself as a respected and influential voice in the IAEA. NRC participation also allows staff to influence IAEA guidance so that it is consistent with NRC regulations and guidance, to minimize adverse regulatory impacts domestically. It should be noted that NRC staff employed at IAEA are international civil servants who cannot specifically represent NRC positions, but their background and experience allow them to be aware of the concepts and approaches used by the NRC and influence the direction of activities in conformance with NRC and USG policies. With the expected growth in nuclear power, the new controls on the safety and security of radioactive sources, and the enhanced focus on security to prevent terrorism, it becomes increasingly important to maintain representation in the IAEA staff, while continuing to actively participate in the available meetings, and keep NRC employees assigned to the IAEA apprised of significant developments in their areas of involvement at NRC.
IAEA experience is also beneficial in enhancing the skills and knowledge of staff who return to NRC from IAEA positions. Staff has used IAEA experience effectively to enhance NRC participation in ongoing international activities. For example, one former IAEA staff member, currently an NRC Division Director, routinely represents NRC interests at IAEA Transportation Safety Standards Committee meetings, while another has played a key role in supporting the development of the U.S. national report and representing NRC in review meetings for the Joint Convention on the Management of Spent Fuel and Radioactive Waste Management. Another, who was instrumental while at the IAEA in the development of the Code of Conduct on Research Reactors, represented the United States in a significant technical meeting regarding the implementation of the Code shortly after joining the NRC upon his return.
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Selection Process for IAEA Positions Presently, IAEA vacancy announcements are provided to the Office of International Programs (OIP) at regular intervals through the U.S. Mission to International Organizations in Vienna, Austria (UNVIE). OIPs IAEA desk officer transmits these vacancies to the program offices via the international liaisons to canvass the offices for eligible and interested candidates. However, there is no agency-wide approach to disseminating this information. NRC staff who express interest in IAEA vacancies are vetted internally to achieve management endorsement and encouraged to apply and to keep OIP apprised of their applications progress. Candidates often benefit from NRC management support and recommendations to advance their applications and promote hiring. In the case of some senior-level positions, the Commission has occasionally become involved in this process, as has the Ambassador to UNVIE. describes the various types of IAEA positions.
Challenges to U.S. Representation The U.S. Government provides 25% of the IAEA budget; it is generally understood that the IAEA expects U.S. regular budget staff representation to be approximately one-half of that amount, or 12.5%. Though the United States would prefer a larger percentage, actual U.S.
regular budget representation is slightly below that figure and has been on a downward trend for nearly a decade. Key factors contributing to this problem include: (1) lower salaries for IAEA jobs and the termination of equalization pay upon return to the U.S.; (2) limited opportunity for spousal employment; (3) highly specific job descriptions, requiring staff with specialized qualifications; (4) an IAEA-mandated retirement age of 62, which inhibits certain experts from pursuing advanced positions; and (5) perceived limitations on NRC career development due to a number of factors, including a sense that NRC management would prefer to retain key staff and a concern that being away from the agency for an extended period of time would hinder both a return to a former position and possible future advancement within NRC. This information has been gleaned both from collaborative discussions with representatives from other U.S. Government agencies that address international staffing issues and from informal discussions with NRC staff who are former IAEA employees.
NRC staff employment at the IAEA has diminished to its lowest level in recent memory. The departure of a CFE in May 2006, who returned to NRC, left the IAEA with no current staff members who have re-employment rights with NRC for the first time in over 10 years. Three former NRC staff have also recently left IAEA regular budget positions.
The State Department continues to work on behalf of the U.S. Government to address some of the larger challenges raised above. However, some of the challenges are in areas that can be effectively addressed on an individual agency basis. As part of this effort, as evidenced by Secretary Rices letter, the Department has encouraged individual U.S. Government agencies to examine their processes with respect to staff representation in international organizations.
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Proposals for a Streamlined NRC Approach to IAEA Vacancies A streamlined, more visible NRC approach to IAEA recruitment activities would be a beneficial contribution to the U.S. Governments initiative. A more coordinated agency approach should promote staff awareness of available positions, NRC employment at the IAEA, and effective use of NRC staff resources following IAEA rotations. This latter factor is key to enhancing the attractiveness of an assignment at IAEA for NRC staff career planning.
As a first step, staff is considering establishing procedures to make IAEA vacancy announcements more widely available by posting them on the OIP and Human Resources internal web pages. This practice is currently discouraged by NRC policy. As a result, many potentially interested and qualified staff are not aware of the opportunities that may be available.
NRC staff can be encouraged to apply for positions and actively support well-qualified candidates throughout the application process. Staff at all levels, with an emphasis on mid-career individuals, should be encouraged to apply. Less senior staff could also be made aware of Junior Professional Officer positions. Such efforts would be in addition to opportunities for staff to participate in various international aspects of their current program assignments, and would seek to assure that assignments at IAEA are career-enhancing for staff.
Second, staff is examining a more targeted approach to provide specific information to enhance interested individuals knowledge of the application process, benefits, housing, re-employment rights, spousal employment, and other essential issues through the Office of Human Resources and the Office of International Programs. The OIP IAEA desk officer would play a key role in this process, with Program Office international liaisons and the Nuclear Safety Attache providing broad information.
Third, the staff believes that a more direct connection should be created between Headquarters and any NRC personnel employed at the IAEA to keep the NRC apprised of their projects and achievements, how they relate to work in Headquarters and the regions, and vice versa. The Nuclear Safety Attache in Vienna could meet regularly with staff as part of this connection, as well as keep them informed of relevant major developments at NRC. In addition, senior NRC
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managers could meet with NRC staff employed at the IAEA on the margins of various meetings, including the IAEA General Conference, to demonstrate management interest in their work and benefit from their advice.
To enhance the NRCs ability to effectively capture the knowledge of staff returning from assignments at the IAEA, the staff must make a more deliberate effort to assign returning NRC staff in program areas in which their IAEA experiences can be utilized. Other knowledge management mechanisms, such as conducting brown bag seminars for headquarters and regional staff on the experience and benefits of service at IAEA, would provide an excellent venue for individuals to convey useful information to their colleagues, broaden office perspectives on international activities, and facilitate knowledge management.
CONCLUSIONS:
NRCs presence and influence within the IAEA staff has been painstakingly developed during the past few decades. Despite these efforts, the presence of NRC staff employed at IAEA is diminishing. Allowing the level of NRC staff employment at the IAEA to wane further could significantly reduce the NRCs influence at a critical time for the IAEA and for NRC. In addition, international employment can afford numerous benefits for individual employees careers.
NRC management and staff are engaged in immediate planning and deployment efforts to maintain a small cadre of leaders and experts at the IAEA. IAEA activities in which the NRC has a stake will continue regardless of the NRCs presence in Vienna. Without consistent representation, it will become increasingly difficult for NRC staff attending only brief consultancies and technical meetings to play a lasting role in the development of guidance documents and other work, despite the work of the Nuclear Safety Attache. This will adversely impact the NRCs ability to influence IAEA discourse and protect NRC interests from facing contradictory IAEA policies. In addition, the NRC will be deprived of the beneficial and wide-ranging knowledge that staff can bring to the NRC upon their return from IAEA rotational assignments.
STAFF COMMITMENTS To improve NRC representation at the IAEA and to maximize knowledge transfer from NRC staff at the IAEA and staff returning to the NRC, the staff will:
Explore the posting of IAEA vacancy announcements on NRC internal web pages to increase visibility and distribution, ensuring that employees at both Headquarters and regional offices are made aware of opportunities at the IAEA;
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Target information dissemination to enhance staffs understanding of available vacancies; the application process; benefits and housing information; re-employment rights; and other key issues; Increase communication with NRC staff serving assignments at the IAEA to share insights on their work and keep them apprised of developments at NRC; and Assure positions for staff upon their return to NRC that will effectively utilize their experience, and provide mechanisms for them to inform other NRC staff of their experiences.
COORDINATION:
This paper has been coordinated with the Offices of International Programs, Nuclear Reactor Regulation, New Reactors, Nuclear Material Safety and Safeguards, Federal and State Materials and Environmental Management Programs, Nuclear Security and Incident Response, and Nuclear Regulatory Research, and with the Office of Human Resources. The Office of the General Counsel has no legal objection to the contents of this paper.
Janice Dunn Lee, Director Office of International Programs
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despite the work of the Nuclear Safety Attache. This will adversely impact the NRCs ability to influence IAEA discourse and protect NRC interests from facing contradictory IAEA policies. In addition, the NRC will be deprived of the beneficial and wide-ranging knowledge that staff can bring to the NRC upon their return from IAEA rotational assignments.
STAFF COMMITMENTS To improve NRC representation at the IAEA and to maximize knowledge transfer from NRC staff at the IAEA and staff returning to the NRC, the staff will:
Explore the posting of IAEA vacancy announcements on NRC internal web pages to increase visibility and distribution, ensuring that employees at both Headquarters and regional offices are made aware of opportunities at the IAEA; Target information dissemination to enhance staffs understanding of available vacancies; the application process; benefits and housing information; re-employment rights; and other key issues; Increase communication with NRC staff serving assignments at the IAEA to share insights on their work and keep them apprised of developments at NRC; and Assure positions for staff upon their return to NRC that will effectively utilize their experience, and provide mechanisms for them to inform other NRC staff of their experiences.
COORDINATION:
This paper has been coordinated with the Offices of International Programs, Nuclear Reactor Regulation, New Reactors, Nuclear Material Safety and Safeguards, Federal and State Materials and Environmental Management Programs, Nuclear Security and Incident Response, and Nuclear Regulatory Research, and with the Office of Human Resources. The Office of the General Counsel has no legal objection to the contents of this paper.
Janice Dunn Lee, Director Office of International Programs G:\\IAEA\\IAEA Staff Support CP.wpd
ML070360148 (Package)
ML070360219 (Commission Paper)
ML070360246 (Enclosure 1)
- Previously concurred
JSchwartzman*
MDoane*
BBorchardt*
JDyer JStrosnider**
CMiller**
DATE 11/15/06 11/15/06 11/15/06 01/31/07 02/6/07 02/7/07 02/8/07 OFFICE NSIR RES/D OGC OHR EDO OIP/D NAME RZimmerman**
BSheron**
GFehst/TRothschild*
JMcDermott LReyes JDunnLee DATE 02/5/07 02/13/07 02/1/07
/ /07
/ /07
/ /07
American Citizens in Posts Subject to Geographic Distribution at IAEA (as of 11/6/06)
NRC Staff Employment at IAEA Former NRC Staff at the IAEA Current NRC Staff Formerly at the IAEA Laban Coblenz Jesse Arildsen David Graves William Brach F. Mark Reinhart (Cost-Free Expert)
Clarence Breskovic Michael Wangler Steve Caudill Eric Weinstein (IAEA-funded contractor)
Michael Cullingford Bernard Weiss (Cost-Free Expert)
Harold Eichenholz Ben Wilson Giorgio Gnugnoli M. Kendra Klump Richard Milstein
Eric Reber Mark Shaffer Marcus Voth Martha Williams
Types of IAEA Employment Regular Budget Staff The IAEAs hiring process for regular budget staff is quite similar to that of the U.S. government.
The Agency has an electronic vacancy posting and application process, and candidates are selected through a review panel process, in which short-listed applicants must be selected and approved by department heads. Senior position selections at the P-5 diplomatic level and above must be approved by the Director Generals office and are subject to considerations to assure appropriate balance of geographical and Member State representation. There are currently five former NRC staff in regular budget positions at the IAEA.
For professional positions, the IAEA follows a three-year rotation schedule, with a possibility of extensions. In general, rotations may not last longer than seven years. Regular budget staff are direct IAEA employees for the duration of their rotation, receiving an IAEA salary and benefits.
Cost-free Experts Cost-free experts are persons provided by donor states or institutions to the IAEA as temporary staff to perform specific tasks for which no resources and/or experienced staff members are available within the IAEA. However, unlike regular budget staff, CFEs are not counted by the Department of State in reporting U. S. Representation to Congress. CFEs are typically assigned to a one-year position with the possibility of one-year extensions. Extensions require U.S.
Government interagency approval and may be granted a maximum of three times per person, though they may be granted as many times as is necessary.
CFE position needs are identified by the IAEA and provided to the U. S. Mission, sometimes preceded by a suggestion from the Mission if the U. S. perceives a particular need that it would like to support. The Mission makes such requests known to the Department of State (DOS).
Selected candidates negotiate the terms of employment with the IAEA. CFEs are required to report annually on their activities to DOS.
There are three types of CFEs, designated by the amount of financial responsibility placed upon the IAEA and the donor country:
- Type A: The CFE is paid by the IAEA in accordance with the terms of appointment and the donor country (typically through the Department of State for NRC employees) reimburses the IAEA for all costs incurred, with the exception of travel for offical business. The CFE becomes an IAEA employee and may represent the IAEA.
- Type B: The CFE is paid directly by the donor country and there is no financial obligation by the IAEA with the exception of travel for offical business.
- Type C: The cost of employment of the CFE are shared between the IAEA and the donor country. Typically this arrangement is for developing countries and IAEA pays a daily subsistence allowance and the donor country provides other benefits.
The CFE program is a unique opportunity for NRC staff to share their expertise with the IAEA, and in so doing, influence the Agencys work. For example, an NRC probabilistic risk analysis (PRA) expert is currently assisting the IAEA in risk-informing its safety and security programs. In return, this staff member and other CFEs return to NRC with a greater global perspective of their field. There is currently one former NRC staff member serving in a CFE position at the IAEA; another former employee is funded by the United Kingdom. It is important that the NRC continue to provide IAEA staff support and actively promote opportunities for staff at the IAEA as they arise.
Junior Professional Officer Program The IAEAs Junior Professional Officer (JPO) program is specifically geared toward young professionals seeking to gain international experience at the beginning of their careers. JPOs must be 32 years of age or younger, hold a college degree, and, in general, have two or more years of professional experience. JPO assignments last for one year - at present, there is no NRC representation in the JPO program.
Other Forms of Employment
2 Another category of employee which is similar to CFEs is the IAEA contractor. Contractors may be employed by the IAEA using a variety of resources, both within the regular budget and through extrabudgetary funding. The IAEA also employs consultants, technical cooperation project personnel and temporary assistance staff. These positions can provide a broadening opportunity as rotational assignments associated with developmental programs. In addition, Director General ElBaradei has initiated an ongoing effort to recruit more women to positions at all levels of the IAEA.