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                      A QUESTION OF EQUITY:
     Women and the Glass Ceiling in the Federal Government

                    A Report to the President 
             and the Congress of the United States 
           by the U.S. Merit Systems Protection Board



Transmittal Letter

U.S. MERIT SYSTEMS PROTECTION BOARD
Washington, D.C. 20419

October 1992

In accordance with the rcquirements of the Civil Service Reform Act
of 1978, it is an honor to submit this Merit Systems Protection
Board report entitled "A Question of Equity: Women and the Glass
Ceiling in the Federal Government."

While almost half of white-collar employees in the executive branch
are women, only about one in ten senior executives is a woman. This
report examines the reasons that so few women are in top-level
positions in the Civil Service.

Only some of the imbalance between men and women in higher grades
can be explained by differences in the amount of education and
years of Government service. Women also face unfounded stereotypes
and assumptions about their abilities and job commitment that serve
as subtle barriers to their advancement. The report discusses these
barriers and offers recommendations for ways to achieve greater
equity for women.

We believe you will find this report useful as you consider issues
concerning the effective management of Federal employees.

Respectfully,

Daniel R. Levinson, Chairman

Antonio C. Amador, Vice Chairman

Jessica L. Parks Member 


cc: The President 
    President of the Senate 
    Speaker of the House of Representatives



U.S. Merit Systems Protection Board

DANIEL R. LEVINSON, Chairman 
ANTONIO C. AMADOR, Vice Chairman 
JESSICA L. PARKS, Member
LUCRETIA F. MYERS, Executive Director

Office of Policy and Evaluation

Director, Evangeline W. Swift
Deputy Director, John M. Palguta
Assistant Director, Bruce C. Mayor
Project Manager, Katherine C. Naff

Project Analyst, John Crum, PhD.


                            TABLE OF CONTENTS


EXECUTIVE SUMMARY
     Findings
     Recommendations

INTRODUCTION
     Prior Research
     Focusing on the Barriers

METHODOLOGY
     Central Personnel Data File
     Focus Groups
     Survey

WHERE MEN AND WOMEN ARE IN THE WORKFORCE
     Distribution by Occupational Category
     Distribution by Grade Level
     Projections for the Future

CAREER ADVANCEMENT IN THE FEDERAL GOVERNMENT
     Experience and Education
     Mobility
     Job Commitment
     Expectations of Work and Family Requirements
     Employees' View of Their Career Advancement

     The Importance of Mentors
     Making Use of Networks

STEREOTYPES, EXPECTATIONS, AND PERCEPTIONS
     Holding Women to Higher Standards
     Limits on Career Choices
     How Important are Perceptions?

MINORITY WOMEN
     Demographic Differences
     Career Advancement Factors
     Perceptions
     Summary

CONCLUSION AND RECOMMENDATIONS
     Conclusion
     Recommendations

Appendix 1: Survey 
Appendix 2: Percent of PATCO Categories Filled by Women, by Agency,
FY 1990
Appendix 3: Percent of Each Grade Range Filled by Women, by Agency,
FY 1990


The findings of this study are based on survey data and analyses of
workforce statistics.  The findings are not legal conclusions and
do not establish or suggest legal violations by, or create legal
rights or liabilities against, any officer or entity of the Federal
Government.