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Revolving Fund Activities

Pursuant to Title 5, U.S.C. §1304 (e) (1), OPM is authorized to use Revolving Funds without fiscal year limitations to conduct background investigations, training, and other personnel management services that OPM is authorized or required to perform on a reimbursable basis. Under this guidance, OPM operates several programs, which are funded by fees or reimbursement payments collected from other agencies and other payments.

The following programs are authorized to use Revolving Funds:

  • Suitability Executive Agent
  • Human Resources Solutions
  • Enterprise Human Resources Integration
  • Human Resources Line of Business
  • Human Resources Solutions Information Technology Program Management Office; and
  • Credit Monitoring and Identity Protection Services
  • Federal Executive Boards

The following table discusses the business lines followed by a detailed description of the activities supported by OPM’s Revolving Fund, which is aligned with OPM’s statutory authority.

OPM Revolving Fund Budget by Program
OPM Budget Authority FY 2025 CBJ
Suitability Executive Agent $11,732,689
Human Resources Solutions $433,654,876
Enterprise Human Resources Integration $40,066,689
HR Line of Business $3,150,000
Human Resources Solutions Information Technology Program Management Office $115,475,705
Credit Monitoring $98,398,169
Federal Executive Boards $13,500,000
OPM Total $715,978,127

Suitability Executive Agent

Pursuant to Executive Order 13467, as amended, the OPM Director is the Suitability & Credentialing Executive Agent, with specific Government-wide responsibilities. Suitability Executive Agent Programs (SuitEA) was established as a distinct program office within OPM in December 2016 to strengthen the effectiveness of suitability and credentialing vetting across the Government by providing a focal point within OPM for leadership, process improvement, and modernization while continuing to perform adjudicative operations benefitting Federal agencies.

SuitEA carries out its responsibilities through a policy office responsible for business transformation and modernization of the Government-wide suitability, fitness, and credentialing program, supported by an adjudicative operations staff that takes Government-wide actions to promote the efficiency and protect the integrity of Federal agencies’ operations, and an oversight team that conducts assessments of Federal agencies’ performance and makes recommendations for improvement. Additionally, SuitEA may provide adjudication support services for agencies on a reimbursable basis, which includes making suitability determinations when an agency elects to not perform the functions that have been delegated to them by OPM.

SuitEA is part of the OPM revolving fund, and as such acts as a fee-for-service program with 100 percent of its resourcing coming from its federal customers. Starting in FY 2021, SuitEA began collecting resources through its own inter-agency agreements based on a new customer-vetted cost model. SuitEA prides itself on its customer service and will continue to keep costs down while providing the highest level of service possible. SuitEA’s Federal customers are given their estimated allocation costs two years in advance in order to match the budget cycles. For the FY 2025 budget submission, because SuitEA collects resources through a revolving fund it strives to make the amount collected from customers equal to expenses; however, if SuitEA has a slight surplus or deficit from year to year, SuitEA is committed to operating on a break-even basis to the best of its ability, typically over a five-year period.

Resources collected for this program include those used for SuitEA’s adjudicative operations staff who review investigations submitted by federal agencies. They identify those cases potentially warranting an action by OPM and gather evidence needed to take an action and defend it in the event of an appeal to the Merit Systems Protection Board. When an applicant or appointee seeking employment with a Federal agency has committed falsification or fraud in the hiring process or has committed pre-employment conduct that is incompatible with the integrity or efficiency of the service, SuitEA may take a Government-wide action to debar the individual from holding any covered position throughout Government for up to three years. Covered positions are those in the competitive service, the excepted service that can non-competitively convert to the competitive service, or a career appointment to the Senior Executive Service. This action promotes the efficiency and integrity of the agency with whom the individual sought employment as well as all other agencies employing competitive service employees as it prevents or removes an unsuitable individual from placement in a position. SuitEA conducts supplemental inquiries needed for issue resolution and must gather evidence that meets the requirements established through precedential case law. If the case does not warrant OPM adjudication after issue resolution, SuitEA will send the additional information obtained to the agency for adjudication if appropriate. There is a regulatory time limitation for taking suitability actions which makes it imperative that the cases are identified quickly upon completion.

Similarly, SuitEA reviews background investigations for positions under OPM’s jurisdiction that involve major issues to include material intentional falsification or fraud or deception in examination of appointment. This may include the applicant or appointee who has committed a serious criminal offense or who has altered or submitted altered documents, misrepresented a college degree through the purchase of the degree through a bogus educational institution, and/or lied about a material fact on application paperwork. Upon receipt, SuitEA staff will review the case; conduct issue resolution; issue written notification about the issues of concern to the subject of the investigation; process subject requests for the materials relied upon; take suitability actions which may include canceling eligibilities or reinstatement rights, imposing debarment from Federal employment, and/or directing removal; and support the Office of General Counsel when OPM suitability actions are appealed.

Beginning in FY 2024 SuitEA plans to expand its adjudicative services. It will begin to offer customer agencies the ability to request that SuitEA makes all suitability and fitness determinations on the behalf of the requesting agency. In most cases these determinations will be done on a reimbursable basis once the results of a background investigation are completed. Before entering into an agreement, the agency will be vetted to establish that we can support the additional workload and that the requesting agency needs SuitEA support. The funding collected for this initiative is estimated to be very small in FY 2024 and FY 2025 but may expand in the future.

Resources collected through inter-agency agreements allow customer agencies to attend and benefit from the government-wide suitability training programs that SuitEA developed and offers for suitability and fitness adjudicators with no additional attendee fee. These classes are compliant with the National Training Standards for Suitability Adjudicators. In FY 2023, SuitEA issued updates to the National Training Standards for Suitability Adjudicators to align with Trusted Workforce 2.0 policy updates while co-leading an effort for similar revisions to the National Training Standards for Security Adjudicators and Background Investigations. Delivery of compliant training to federal agencies’ adjudicators promotes uniform decision making across Government, professional development of the suitability and fitness workforce, and reciprocal recognition of favorable determinations. SuitEA also developed and offered training to bridge the gap between the former and the new National Training Standards for Suitability Adjudicators. This training addressed policy changes brought about by Trusted Workforce 2.0 while also updating training content of its’ Government-wide training offerings. SuitEA also offers refresher training sessions to stakeholders. These periodic sessions offer retraining on key aspects of delegated functions and aim to keep practitioners’ knowledge up to date. Additionally, SuitEA is continuing to take steps towards developing training for credentialing adjudicators and may look to expand its training offerings to address other vetting-related areas within its purview.

SuitEA’s training is offered both virtually and in person. Virtual delivery of training, first offered in FY 2021, has proven to be highly effective and has allowed SuitEA to increase the number of courses offered due to recognized cost savings by eliminating travel for instructors and reducing the need for supplies to produce hard copy versions of training materials. Without the need to send students to the courses, agencies have also seen savings in their respective travel budgets. Costs for existing trainings are built into the SuitEA budget and each year an analysis will be conducted to determine if increases or decreases in training demand will warrant a budget adjustment and/or the need to begin charging attendees on an individual basis.

SuitEA operates a suitability helpline and suitability and credentialing email boxes to provide customer support on technical and interpretative matters related to suitability, fitness, and credentialing. SuitEA also maintains a distribution list of agency contacts for regular two-way communication to support Federal agency suitability, fitness, and credentialing programs. SuitEA provides this network of contacts a quarterly newsletter covering current events and other matters of the interest to the Suitability/Fitness and Credentialing community. SuitEA acts on behalf of agencies by providing requirements for the systems used to support position designation, adjudication, and reciprocity management for federal employees and contractors.

SuitEA Oversight inspects Executive Branch personnel vetting programs to support at a minimum personnel suitability, fitness, credentialing, and investigative requirements for persons working for and on behalf of the Federal Government, as well as to enable efficient and effective processes in support of reciprocal recognition of investigations and suitability/fitness and credentialing adjudications across Government.

SuitEA Oversight’s team of 8 Inspectors currently conducts 18 full inspections and approximately 10-15 follow-up inspections each fiscal year. In FY 2023 Oversight continued to conduct the majority of their reviews remotely, due to the COVID-19 pandemic. As public health considerations allow, Oversight will continue to phase in in-person reviews during FY 2024 and FY 2025 to the extent practicable.

In coming fiscal years, Oversight will look to further streamline inspection processes and increase Oversight staff, in order to increase the number of programs inspected each year, further supporting efficient processes across government. Oversight is also looking to add broader-scope trend analysis, focusing on identifying areas of weakness and success across all Executive Branch agencies.

Directly contributing to OPM Strategic Objective 4.2, SuitEA took steps to continue improving the quality of delegated suitability adjudications government-wide by issuance of guidance that promotes greater consistency in how adjudicators apply suitability criteria when addressing conduct associated with emerging societal trends or conditions. In February 2021, SuitEA issued supplemental guidance for assessing suitability of applicants based upon prior marijuana usage and a reminder on drug free workplace policies. These efforts to align guidance to societal trends and conditions will continue into FY 2025 as SuitEA prepares and issues updated supplemental guidance to its Suitability regulations. SuitEA will also continue to be proactive and agile in issuing government-wide guidance to assist in unprecedented situations. At the onset of the COVID-19 pandemic, SuitEA issued temporary vetting measures to enable agencies to continue to onboard new personnel by delaying fingerprints submissions, in coordination with complementary guidance from the Federal OCIO. SuitEA monitored the impact of COVID-19 safety measures on personnel vetting requirements and issued guidance to assist agencies, as necessary. In Q3 FY 2023, SuitEA rescinded the temporary vetting measures and required agencies to submit outstanding fingerprints within three months. SuitEA worked closely with agencies with high volumes of prints to provide any assistance they might need to meet the deadline. SuitEA will explore whether some of the flexibilities offered during COVID-19 maximum telework posture may be permanently implemented to facilitate the onboarding process, particularly when processing workers who live in remote areas where it is not practical for them to travel to the agency for in-person on-boarding and/or identity proofing. Should permanent changes be feasible, SuitEA will seek to implement any needed policy guidance in FY 2024 and 2025 to assist agencies in future years.

In accordance with the roadmap for a transformed Government-wide approach to suitability, fitness, credentialing, and security vetting developed with the Office of the Director of National Intelligence (ODNI) and the Performance Accountability Council (PAC) as part of the Trusted Workforce 2.0 initiative, SuitEA has continued to co-lead efforts to develop transformational outcome-based policy. The “Federal Personnel Vetting Core Doctrine,” developed and issued in the Federal Register by SuitEA and ODNI, became effective in February 2021. It lays out the foundational level of policy framework describing the philosophy for a transformational Federal personnel vetting program for the Executive Branch by defining the personnel vetting mission, its guiding principles, key supporting processes, and policy priorities. In FY 2022, SuitEA and ODNI issued guidelines for Federal Personnel Vetting, Performance Management, and Engagement. These guidelines describe the vision for modernizing the personnel vetting enterprise by establishing strategic outcomes for transformational changes to personnel vetting policies and processes, performance management, and engagement with individuals undergoing the vetting process. The guidelines are aligned with and supportive of the Federal Government’s broader efforts to recruit and retain a diverse and talented workforce. Additionally, SuitEA and ODNI jointly issued the Federal Personnel Vetting Investigative Standards, marking a key milestone in the transformation of the investigative process. These Standards use a risk management approach to investigations that maximizes uniformity across all Federal personnel vetting domains and focuses on the efficient collection of information needed to make informed trust determinations. Additionally, SuitEA and ODNI jointly issued the Common Principles in Applying Federal Personnel Vetting Adjudicative Standards and the Federal Personnel Vetting Performance Management Standards. The Common Principles in Applying Federal Personnel Vetting Adjudicative Standards provide guidance to further align processing and adjudications for suitability, security, and credentialing, to the maximum extent possible. The Federal Personnel Vetting Performance Management Standards access the success of personnel vetting programs by measuring efficiency, effectiveness, fairness, and risk across the Federal personnel vetting enterprise, enabling departments and agencies to make effective and data-driven decisions.

In FY 2024, SuitEA together with ODNI issued guidance to implement Trusted Workforce policies and measures including the vetting scenarios (initial vetting, continuous vetting, upgrades, transfer of trust, and reestablishment of trust) and the Performance Management Standards Implementation Guidance (PMIG). The PMIG establishes the aspirational targets for previously issued metrics designed to measure the success of the TW 2.0 reform efforts. Further policy development and phased implementation of the roadmap will take place in FY 2024 and FY 2025 as SuitEA, together with the PAC and ODNI, works with agencies through to transition them to modernized personnel vetting capabilities. In FY 2025 SuitEA will closely monitor the reform efforts implementation, work closely with agencies, monitor the performance metrics to support data driven continuous improvement of the TW 2.0 personnel vetting framework.

In FY 2023 SuitEA proposed amendments to its regulations to bring about greater consistency in determinations of fitness for positions outside of the competitive service. With the final rule, this will further increase agency confidence in making reciprocal determinations and improve mobility for Federal employees or applicants wishing to re-enter service for or on behalf of the Federal Government. Concurrently, in FY 2023 SuitEA also proposed regulations for continuous vetting for low-risk and public trust positions to allow movement away from traditional periodic reinvestigations and assist agencies in better mitigating risk. Through FY 2025, SuitEA will work to implement government-wide guidance and training for regulatory changes arising from changes to vetting policy that will occur through rulemaking.

Additionally, in FY 2023 and FY 2024, SuitEA identified and proposed changes to information collections to support Trusted Workforce policy and process changes as well as to elicit potential domestic terrorism involvement, consistent with the National Strategy for Countering Domestic Terrorism. SuitEA will seek implementation of such changes in the business systems supporting federal vetting by end of FY 2024.

In FY 2021, SuitEA issued and implemented updated credentialing standards procedures for issuing personal identity verification (PIV) credentials under Homeland Security Presidential Directive-12 and new requirements for suspension or revocation of eligibility for PIV credentials. The procedures in this guidance standardized appeals procedures for PIV denials, clarified the applicability of PIV determinations to short-term population, and introduced the concept of suspension / revocation of PIV eligibility. The existing OPM credentialing guidance documents are being consolidated and will be proposed in regulation through the Notice of Proposed Rule Making. SuitEA anticipates publication of the rule change in FY 2024 (slated as 5 CFR, part 737). Once final, SuitEA will create and coordinate a Credentialing Handbook and Best Practices guide with stakeholders in FY 2024. Content development for the handbook began in FY 2022 and will include information requested by credentialing stakeholders across the Executive branch. SuitEA will also begin work on a virtual credentialing adjudication’s training once the final regulation is issued. In FY 2025, SuitEA will engage stakeholders to provide implementation guidance as needed and promote the credentialing handbook and training available. The Credentialing regulation will include personnel vetting standards for short-term population requiring access to Federal facilities and IT systems in response to an OMB request that OPM issue such guidance, per OMB M-19-17, Enabling Mission Delivery through Improved Identity, Credential, and Access Management. If the proposed rule is approved, Agencies will be required to implement the minimum vetting requirement of fingerprints and identity verification to issue an alternative credential granting access to Federal space and IT systems for no longer than six months. This will be the first time such vetting will be required of this population and SuitEA plans to include supplemental guidance in the Credentialing Handbook.

Since FY 2021, SuitEA has been collaborating with USAccess, the largest PIV credentialing issuer in the U.S. government to improve Departments and Agencies’ reporting to the personnel vetting central repository system hosted by the Defense Counterintelligence and Security Agency (DCSA). SuitEA continues to liaise between USAccess and DCSA to assist efficient information sharing in support of workforce “transfers of trust,” or reciprocal acceptance of existing credentials. In FY 2022, SuitEA hired a credentialing security specialist to assist with credentialing training development, stakeholder engagement, and Trusted Workforce reform efforts.

SuitEA continues to provide personnel vetting requirements for the new supporting IT Enterprise architecture for federal personnel vetting. Department of Defense’s updated background investigation system is being built, and SuitEA will continue to contribute requirements to meet the needs of security, suitability, and credentialing (SSC) programs and promote accessibility to shared service offerings. As OPM transitioned to the FY 2022 – 2026 Strategic Plan, SuitEA continues to work with WPI and HRS to identify ways to integrate and improve the flow of HR and vetting related data within the updated systems in a manner that will improve efficiencies for agencies in hiring and personnel vetting, building on the work begun under Goal 1 of the FY 2018 – 2022 Strategic Plan.

Beginning in FY 2023, SuitEA contributes to Goals 1, 2, and 4 of the FY 2022 – 2026 Strategic Plan, specifically to the following objectives as described:

  • Objective 1.1 – Achieve a Federal workforce that is drawn from the diversity of America by supporting agencies in fostering diverse, equitable, inclusive and accessible workplaces;
    Beginning in FY 2022 and continuing into FY 2023 and FY 2024, SuitEA will contribute to Objective 1.1 through suitability and credentialing program government-wide efforts. In accordance with the requirements of President Biden’s National Security Memorandum – 3 and Executive Order 14035, working with the Performance Accountability Council (PAC) and Office of the Director of National Intelligence (ODNI), SuitEA will take steps to eliminate bias in the vetting process and mitigate barriers in background investigation processes for LGBTQ+ employees and applicants, in particular transgender, gender non-conforming, and non-binary employees and applicants. In FY 2023, OPM proposed modifications to personnel vetting investigative questionnaires to incorporate language that is inclusive for all applicants; these changes, were approved in FY 2024 and will be implemented in personnel vetting systems.
  • Objective 2.6 – Promote a positive organizational culture where senior leadership lives the OPM values, drives an enterprise mindset and supports employee engagement;
    SuitEA supervisors will work with employees to identify ways to promote a positive organizational culture within SuitEA and across organizational boundaries within OPM, with a specific focus on actions that reflect OPM’s values of Respect, Innovation, Service, and Excellence. This will include an examination of ways to foster DEIA within SuitEA. In addition, SuitEA supervisors will identify means to operate SuitEA with an OPM enterprise mindset, including collaboration and communication among different work units to achieve agency goals. For example, in FY 2022 and FY 2024, SuitEA requested and was selected to participate in HCDMM’s innovation pilot project. In FY 2023, SuitEA was selected to pilot a Peoples First Mentoring initiative aimed at improving the employee experience thus having a positive effect on the customer experience. Additionally, SuitEA has eagerly approached an activity happening across OPM involving the development of employee engagement plans informed by responses to the Federal Employee Viewpoint Survey. Through the plan, SuitEA has developed and enhanced methodologies for improving communication, recognizing exceptional performance, and increasing opportunities for employee development. In FY 2024 SuitEA will contribute to OPM’s assessment of its state of DEIA through data analysis and plans to act as a pilot program in order to create a model for the rest of OPM. These activities will carry into FY 2025.
  • Objective 4.2 – Improve efficiency of Government-wide policy work by shifting to more strategic, risk-based delegations of authorities to agencies, increasing the percentage of low-risk, high-volume transactions delegated to agencies.
    SuitEA, as a deputy strategic objective owner for Strategic Objective 4.2, is working with other OPM program offices to implement recommendations by the National Academy of Public Administration (NAPA) in their report of the study of OPM, its mission, organizational structure, and challenges. Specifically, NAPA recommended that OPM adopt a more decentralized and risk-based approach to executing its transactional approval and oversight responsibilities by delegating, to the maximum extent possible, decision-making authorities to agencies and conducting cyclical reviews to facilitate compliance with relevant laws, regulations, and policy guidance. NAPA also recommended that Congress review and amend statutory mandates requiring OPM to conduct transactional approval and oversight and, to the maximum extent practical, authorize OPM to develop an alternative approach to carrying out its transactional approval and oversight responsibilities. In FY 2022, SuitEA worked with MSAC, WPI, CLIA, CHCO, and OGC to complete a review of transactional approval activities, including those identified by NAPA, and delegated authorities the Chief Human Capital Officers have requested. These reviews informed identification and assessment of transactional approval activities that OPM agrees are appropriate for OPM to delegate where it may do so and those that are appropriate for Congress to authorize OPM to delegate. In FY 2022, SuitEA assisted WPI, MSAC, CLIA, and OGC in identifying items for legislative proposals for FY 2023 and FY 2024. SuitEA will continue to work with the co-owners of the objective to identify additional delegations that may be appropriate.

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Human Resource Solutions

Human Resources Solutions (HRS) provides customized human capital products and services to support Federal agencies with meeting mission objectives. HRS human capital experts, along with private sector strategic partners, deliver HRS services to assist agencies with their human capital management requirements. HRS serves a range of agencies across the Federal Government, including cabinet-level, small, and independent agencies. State, local, tribal, and international governments also benefit from HRS offerings.

HRS fully supports Administration and OPM priorities, including the implementation of the Infrastructure Investment and Jobs Act (IIJA), P.L. 117-58 (Nov. 15, 2021), also referred to as the Bipartisan Infrastructure Law (BIL), a once-in-a-generation investment in our nation’s infrastructure and competitiveness. A major factor contributing to a successful implementation of the IIJA is the ability of IIJA agencies to surge recruitment and hiring activities to fill a variety of essential positions, including mission-driven roles.

HRS provides guidance and project management expertise to IIJA agencies (e.g., USDA, Commerce, Energy, EPA, Interior, and Transportation) and plays an important role in supporting IIJA agencies’ talent acquisition, and training needs. HRS collaborates with other OPM programs (e.g., ES, MSAC) to support IIJA hiring agencies in areas including:

  • Recruiting for mission-critical occupations;
  • Building high-performing staff capacity through technical training courses and on-the-job activities;
  • Hosting webinars on topics within the Talent Surge Executive Playbook to assist with the development of Hiring Surge Plans;
  • Developing agency branded career sites on USAJOBS;
  • Piloting and establishing sponsor level partnerships with a variety of national organizations, universities, and Federal agencies to promote IIJA occupations and source candidates to build a pipeline for IIJA opportunities;
  • Establishing an OPM enterprise analytics platform to enable integration of IIJA data across programs, improving the timeliness and accessibility of key data assets through dashboards/data products to improve agency decision-making; and
  • Providing other practical solutions to meet IIJA agency human capital needs.

Center for Leadership Development (CLD) (Strategic Goals 1.3, 3.1, 3.2, 3.4, 4.1, 4.4, and 5.1 Additional Mission Activities)

The Center for Leadership Development consists of eight (8) distinct solution areas, the Federal Executive Institute, the Eastern and Western Management Development Centers, the Federal HR Institute, the Presidential Management Fellows program, the Lab at OPM, the Process and Performance Improvement Program, and USA Learning, which provide open enrollment (interagency) and custom (single agency) learning opportunities in virtual, residential, and blended modalities. All programs and courses are designed to provide leadership and professional development to government employees at various stages of federal careers while providing agencies flexibility and capacity to offer a complete range of leadership and professional development. CLD partners regularly collaborate with other OPM entities and agencies to deliver blended services. All training, including the flagship Leadership for a Democratic Society (LDS) program, resumed in-person residence offerings at increased capacity and will likely continue in FY 2025 and beyond. CLD expects to retain program customers and grow the number of offerings based on demand and targeted marketing efforts.

CLD’s professional development programs continue to evolve to meet the changing needs of Federal leaders. Given the focus on customer experience (CX) driven by the President's Management Agenda and Executive Order on Transforming Federal Customer Experience and Service Delivery (EO 14058), CLD projects an increased demand and delivery across all programs. Staffing levels are continuously assessed, while considering program growth and optimal operating levels for efficiency and strategic planning. The objective is to train and educate greater numbers of Federal employees in FY 2025 and diversify the number of agency-specific learning solutions via the following CLD solutions:

  • The Federal Executive Institute (FEI) develops visionary leaders to improve the performance of government agencies through programs that support federal executives in understanding their role within the government’s constitutional framework.
  • The Eastern Management Development Center’s interagency leadership development courses guide Federal employees through a career-spanning process of leadership development, from aspiring leader to senior executive.
  • The Western Management Development Center’s custom leadership solutions help transform agencies’ most immediate leadership challenges into opportunities.
  • The Federal HR Institute (FHRI) offers a comprehensive curriculum in staffing, classification, and pay setting and aims to create an agile, competent Federal HR workforce well-positioned to carry out merit-based and competitive hiring activities.
  • The Presidential Management Fellows (PMF) program is the Federal Government's flagship leadership development program for advanced degree holders across all academic disciplines.
  • The Lab at OPM helps government organizations transform their programs, processes, and people through human-centered design.
  • The Process & Performance Improvement Program partners with agencies to determine root causes of challenges, use data to drive improvement decisions, and pivot processes away from low-value work, allowing a focus on more intellectually engaging work.
  • USA Learning provides clients with customized Learning Management Systems, Online Forums, Executive Coaching, access to online course libraries, custom course development, hosting and help desk support, technical support services, online assessments, and virtual conferencing.

CLD’s pricing structure is a full-cost recovery model within a Revolving Fund activity. Before commencing operations each fiscal year and periodically during the year, CLD analyzes planned delivery schedules based on historical and projected customer demands. Prices are determined through detailed financial analysis focused on ensuring total cost recovery in a reimbursable business environment. CLD continues to offer virtual, hybrid, and in-person modalities to ensure course delivery formats are flexible and accessible in meeting customers’ requirements.

CLD Fee Structures and Pricing

  • Fixed price for interagency catalog courses.
  • Individual program expenses (PMF fee maintained FY 2022 price of $8,000 per PMF hire).
  • Customized / single agency and project-based capabilities priced based on unique customer specifications.
  • Direct vendor costs for services requested plus a management fee of 8% to 15% (USA Learning).

Federal Staffing Center (OPM Strategic Plan Objective 1.3, 3.2, and 5.1 Additional Mission Activities)

The Federal Staffing Center (FSC) partners with agencies to hire high-quality, diverse talent to meet their missions by providing the full range of talent acquisition products and services in alignment with the Acquire stage of the Human Resources (HR) lifecycle. FSC comprises a nationwide network of HR professionals, account managers, designers, CX strategists, business analysts, project managers, IT professionals, and data analysts who deliver talent acquisition solutions across five programs: USAJOBS®, USA Staffing®, USA Hire℠, Staff Acquisition, and Talent Acquisition Analytics.

FSC will continue to focus on activities to advance the President’s Management Agenda and OPM strategic priorities. This includes:

  • Supporting agency talent surge requirements for the Bipartisan Infrastructure Law.
  • Serving as a goal owner for OPM Strategic Objective 3.2 and implementing associated activities, including making refinements to improve the USAJOBS applicant experience, enhancing applicant communications, and increasing personalization through Search Engine Optimization and AI/ML prototypes.
  • Providing tailored USAJOBS resources for early career recruitment.
  • Supporting pooled hiring efforts across Government through the USAJOBS Agency Talent Portal talent pools feature and through managing cross-government hiring actions.
  • Deploying key technology features and enhancements (e.g., PowerBI reports and dashboards, streamlined hiring experiences, new interconnections with agency HRIT solutions, additional Candidate Inventory capabilities, and user experience improvements for the HR and Hiring Manager communities).
  • Scaling USA Hire online assessments for agencies to improve the quality of hires across government in alignment with EO 13932, including implementing new capabilities such as online interviewing.
  • Providing surge staffing, recruitment and branding, and technical training services for agencies.
  • Expanding the Scholarship for Service Program.
  • Completing the Government Accountability Office (GAO) performance audit of USA Staffing.

FSC Fee Structures and Pricing

FSC uses two main fee structures: user fees (systems) and fixed rate (talent acquisition services). User fees are annual subscriptions based on the number of customer licensed HR users or the number of FTEs in the organizations.

  • USAJOBS charges an annual seeker portal fee based on the agency’s FTE count. USAJOBS charges an annual Operations and Maintenance fee for communities on the Open Opportunities website and for career sites.
  • USA Staffing charges a per-HR-user fee for all-inclusive access to the system. The USA Staffing license fee for FY 2023 is $8,954. A growing customer base enables FSC to achieve greater economies of scale through shared service delivery.
  • USA Hire uses a mix of fees structures based on assessment type: 1) fee based on a percentage of the USA Staffing user fee; 2) fixed rates; 3) per applicant testing fees.
  • Staff Acquisition’s pricing structure is based on the time and resources (salaries, benefits, recurring costs, and infrastructure support) associated with delivering staffing services through tasks supporting a hiring action and factored as an hourly consultant rate.

HR Strategy and Evaluation Solutions (HRSES) (Strategic Goal 1.3, 4.3, and 5.1 Additional Mission Activities)

HR Strategy and Evaluation Solutions (HRSES) provides organizational and individual focused strategies to help agencies plan and position for maximum performance. HRSES includes the Assessment and Evaluation Branch (AEB) and HR Strategy (HRSTRAT). HRSES’ consulting and assessment services are mature and are expected to fully cover all associated costs, including the USA Performance® (USAP) software-as-a-service offering with its extensive customer base. USAP expects to significantly grow its user base and continues to implement APIs with agency core personnel systems resulting in better data exchange, while improving data sharing for optimized use and visualization.

HRSES Fee Structures and Pricing

HRSES pricing is scalable, based on quantities of specific products or services (ex. number of participants being assessed) and the selection of optional services. Pricing for products and services are driven by labor costs to deliver each product or service plus an overhead expense allocation for full cost recovery.

Pricing for HRSES products and services are based on one of three models:

  • Fixed price for off-the-shelf products and services, to include user licenses for software-as-a-service based on user base size and aggregated program costs
  • Customized solutions built upon existing products and services priced by customer specifications
  • Services and consultation available on retainer

Human Capital Industry Solutions (HCIS) (Strategic Goals 1.3 and 5.1 Additional Mission Activities)

The HCIS program employs public/private partnerships to deliver private sector human capital and training services and assisted acquisition program management services, to Federal agencies through three Multiple Award, Indefinite Delivery/Indefinite Quantity (MA/IDIQ) contract vehicles (HCaTS Unrestricted, HCaTS Small Business, and HCaTS 8(a)) in the areas of Training and Development, Human Capital Strategy and Organizational Performance Improvement. HCIS supports the continual improvement of human capital and training investments and plays a vital role in fulfilling OPM’s mandate to provide these services to agencies under 5 U.S.C. §§ 1104, 1304, and 4116, as well as Executive Order 11348.

The HCIS costs associated with delivering assisted acquisition services to federal agencies for acquiring human capital and training services from strategic partners is recovered through an assisted acquisition services fee schedule. To date, costs have not been fully recovered. To cover these costs and to ensure cost competitiveness, HCIS completed a comprehensive review of the program to achieve full cost recovery for HCIS. This led to a change in fee structure for new projects from being based on potential maximum task order value as determined by the independent government cost estimate (IGCE) for the life of the award to the actual dollar value on the Interagency Agreement funding document 7600B.

HCIS Fee Structures and Pricing

HCIS uses a tiered fee structure for assisted services. In addition, a Contract Access Fee (CAF), payable to GSA as the contract owner, of 0.75% is assessed on every project whether through HCaTS Assisted or Direct. The tiers consist of the following with the median fee shown for each dollar threshold:

  • $500K to $2.499M: 10%
  • $2.5M to $9.999M: 7%
  • $10M to $19.999M: 5%
  • $20M+: 3%

Center for Management Services (HRS Support Programs) (Strategic Goals 2.3, 2.5, 3.3, 4.1, and 5.2 Additional Mission Support Activities)

The Center for Management Services (CMS) supports HRS service delivery across the enterprise, providing corporate-level resource management, business development, and enterprise business services. The net effect of CMS services is an HRS enterprise-wide approach to the management of its people, finances, outreach, and effective management of cross-OPM and cross-practice area initiatives.

HRS Financials

Value of Anticipated Agreements

  • FY25 = $424.8M
  • FY26 = $448.7M
  • FY27 = $462.3M

New Business Justification

Center for Leadership Development (CLD)

CLD will continue to leverage the strategies and resources that have yielded quantitative success and practice area growth. One solution area primed for transformational advancement is FHRI, CLD will re-brand and posture the program as the premier HR training source to the universe of federal HR professionals by loosely modeling the Federal Acquisition Institute (FAI) training roadmap. The FEI prestigious flagship LDP program is projected to sustain record high levels of in-residence participant enrollment (average 73-83 enrollees). Open enrollment, custom programs, and USA Learning portfolios will benefit from a demand driven approach to product/content offerings as well as leading edge technological investments. We will hone the business development skills proven to be beneficial in deepening customer relationships with federal agencies while growing the leadership learning and training portfolio to more than $202M in revenue for FY 2025.


USAJOBS will continue working to improve the USAJOBS customer experience. As a designated High Impact Service Provider (HISP), USAJOBS will leverage user research, iterative prototyping, and testing to deliver value added features. USAJOBS will expand recruitment tools and streamline processes so agencies can use USAJOBS to attract high-quality and diverse talent.

USA Staffing will support agency system implementation activities for agencies who have determined USA Staffing best meets their talent acquisition system requirements.

USA Hire will continue helping agencies expand their use of modern, competency-based assessments to meet the requirements of EO 13932.

Staff Acquisition will continue providing surge staffing services and recruitment and branding services for agencies while expanding support to student hiring programs such as the Scholarship for Service Program.

Talent Acquisition Analytics Group (TAAG) will provide applicant flow data to support agency recruitment and hiring efforts and work with the Equal Employment Opportunity Commission to expand the resources and training provided to agencies to collect, analyze, and use Applicant Flow Data to identify barriers in the hiring process. TAAG will continue providing talent acquisition analytics capabilities (Power BI reports, dashboards, etc.) for federal agency customers and to support OPM hiring priorities.


HRSES will continue expanding its technology capabilities – namely USA Performance – and the products and services delivered using those systems. HRSES expects to continue seeing aggressive growth in the USA Performance user base in FY 2024 through FY 2026.

HRSES psychologists will continue to build new content for the USA Hire online assessment platform, providing even more online assessment options for agencies.

HRSES will continue to partner with FSC to integrate the classification component of USA Staffing with customer agency classification functions to fully implement while updating their position description libraries.

HRSES will continue capitalizing on its employee experience and hybrid workforce management capabilities to further increase the effectiveness of Federal Government.

HRSES will expand its existing change management offerings to include capabilities from across HR Solutions to increase the Federal Government’s ability to manage and execute major organizational changes brought on by a new future of work and new organizational processes/structures to support it.


HCIS plans to deliver on existing agency engagements through the execution of option periods. The majority of existing HCIS activities are task order based and are structured with a base year and four option period. The HCIS team is actively engaging agencies to support administration priorities, specifically streamlining agency access to industry experts toward the increased use and implementation of hiring assessments.

HCIS has observed other Federal agencies move to provide assisted acquisition services as well as a trend towards increased reliance on internal contracting. Agencies that use internal contracting offices or receive non-OPM support do not benefit from the human capital knowledge and human capital specific acquisition experience of OPM, which creates an opportunity for HCIS to educate customers while providing value to the agencies HCIS supports.

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Enterprise Human Resources Integration (EHRI)

Enterprise Human Resources Integration (EHRI) comprises two programs, the electronic Official Personnel Folder (eOPF) and Enterprise Human Resources Integration Data Warehouse (EHRIDW), supporting the e-Government initiative designed to leverage the benefits of information technology, as required by the E-Government Act of 2002. The goal of these two programs is to streamline and automate the collection, aggregation, and sharing of Federal workforce and employee HR, payroll, and training information Government-wide. The investment broadly supports the OPM mission by enabling the agency to provide the Federal HR community with access to employee data to improve workforce planning for hiring, skills development, retention strategies and Government-wide policy.

The electronic Official Personnel Folder (eOPF) is a sub-program to the EHRI major investment supporting the e-Government initiative to leverage the benefits of information technology, as required by the E-Government Act of 2002. The goal of eOPF is to streamline and automate the collection, aggregation, and maintenance of official career lifecycle documents created during Federal employment. The investment broadly supports the OPM mission by enabling the agency to provide the Federal HR community and employees with access to employee and workforce data to improve workforce planning for hiring, skills development, retention strategies, and Government-wide policy.

The eOPF system is a web-based application that stores, processes, and displays career lifecycle documents of current Federal Employees who have an eOPF. The system has replaced many manual HR processes by automating numerous agency HR processes and creating a streamlined Federal HR document system for Federal employees. The eOPF covers Title 5 Executive Branch departments and agencies, with some exceptions, as well as some components of the Legislative, Judiciary, and other independent agencies and organizations, with a total user population of 2.4 million. The eOPF application is provided through a fee-for-service arrangement with participating agencies. For FY 2025, EHRI anticipates Revolving Fund agreements in the amount of $22,176.980 and expenses for eOPF support, scanning services and new investments for modernization totaling approximately $40,000,000. The agency pricing structure for eOPF maintenance is a fixed price per license based on the number of active users at the customer agency. The eOPF license maintenance, paid annually by the customer, covers the following:

  • Program Management Office support
  • Contract administration
  • IT security
  • OPM Common Services
  • Credit monitoring
  • Software license renewals and maintenance
  • Record storage and transfer services provided by the National Personnel Records Center
  • IT infrastructure hosting and maintenance services
  • Product development
  • Document scanning
  • Helpdesk services

In FY 2025, EHRI/eOPF will continue to develop and implement a roadmap to modernize the program and provide agencies with a cost-efficient system of records to maintain official employee documentation electronically. This will include a redesign of eOPF and EHRIDW into a single enterprise analytics and service delivery platform providing access to a broader scope of data for employees and agencies, with a more comprehensive view across the Human Capital lifecycle. EHRI/eOPF will continue to develop and deploy workforce management analytics tools to Federal agency decision-making at scale. Additionally, other Federal employees and HR records management requests continue to come from Agencies including, but not limited to, the employee Emergency Medical Folder (EMF). EMF management, as an example, is an OPM responsibility that has historically been borne by agencies. Recently, agencies have requested that OPM create a system similar to or within eOPF system to manage EMF’s. There is thus a need to plan, develop and stand up a system/program to accept and manage these agencies’ records in FY 2024.

The success of the eOPF fee-for-service component depends on the continuation of incoming funds through existing and new partner agencies subscribing to eOPF services. These services include program management; providing eOPF training and resources to the human resources community; on-boarding new customers; performing scanning for agencies who request these services; supporting agencies’ eOPF folders; maintaining and supporting infrastructure, applications, and software; providing required system security; and operating a user helpdesk.

The EHRI program will continue to develop additional opportunities to share data and data products across platforms, when appropriate, and continue to explore and implement creative user-focused solutions and data products that improve the value of data and records for employees and agency HR specialists. These products will include robust data visualization and analytics products that offer agencies role-based access to granular to improve consistent and efficient access to data, analysis, and insights across agencies.

EHRI/eOPF will continue to onboard new customers, accelerate its current services for new and existing customers, develop customer value focused tools utilizing OPM’s data assets and reduce dependence on end-of-life technology. It is expected that the foundation has been set for the implementation of the next generation of human capital services in the Federal Government.

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Human Resources Line of Business (HRLOB) and HR Quality Services Management Office (HR-QSMO)

In 2004, the U.S. Office of Management and Budget (OMB) and Office of Personnel Management (OPM) launched the Human Resources Line of Business (HRLOB) Initiative, for which OPM is the managing partner. The HRLOB leads the transformation and evolution of Federal Human Capital (HC) and its Strategic Framework is aimed at developing a single, integrated Federal Human Resources Information Technology (HRIT) to support the 21st century Federal workforce. The Framework builds on HRLOB’s previous success, and when fully implemented, will result in the modernization of HRIT service delivery, improvement of HR data management and standardization, and the effective use of strategic sourcing.

In August 2020, the Human Capital Data Management and Modernization (HCDMM) directorate was created and brought the HRLOB into its structure. Within HCDMM, HRLOB consists of primarily Human Capital Policy Performance and Operations (HCPPO).

In May 2022, OPM was pre-designated by OMB as the HR QSMO and this function has been placed alongside HRLOB within HCDMM. The HR QSMO will establish a marketplace of services and products that enables agencies to improve the delivery of human capital activities in alignment with, and by operationalizing, the HRLOB related standards. The HR QSMO also provides consultative support to agencies and shared service providers (SSPs) who are planning or implementing HR IT modernization efforts. As part of this, the HR QSMO is working to build and maintain an HR IT Inventory and Modernization Roadmap Assessment that provides agencies with market intelligence and identifies opportunities for agencies to plan collaboratively. The HR QSMO also supports OPM’s Data Strategy through the operation of the Federal-wide Human Capital Data Analytics Community of Practice (CoP), which has been established under the auspices of the CHCO Council. This CoP promotes the adoption of OPM’s government-wide data standards, enables agencies to share data analytics and visualization solutions, and aids in a community-wide upskilling effort aimed at improving agencies’ ability to use human capital data as a strategic asset. HRQSMO is currently aligned with appropriated funds; however, there is potential for HRQSMO to become a Revolving Fund activity in FY 2025.

Human Resources Solutions Information Technology Program Management Office

The HRS Information Technology Program Management Office (HRS IT PMO or PMO) provides technology support in the form of IT systems development and hosting, supplying both internal and external customers with a wide variety of information technology services in the human resources arena. No new business is anticipated; however, enhancements will be made to improve the existing customer and end-user experience. Major initiatives that constitute the “enhanced” customer and end-user experience include, but are not limited to:

  • Continuing refactoring efforts from SaaS to PaaS solutions such as the move from SQL Managed Instance to Azure SQL
  • Cloud Migration
  • Defining requirements for self-service customizable dashboards and reports so agencies can easily access their data and conduct analysis
  • Application streamlining
  • Optimizing the back-end systems to improve performance and better meet users’ needs
  • Improving the two-factor authentication experience

The PMO expects $90,000,000 in total agreements in FY 2025 and expects program income of $88,500,000 with revenue exceeding expenses by $1,500,000. In FY 2026 and FY 2027, the organization is expecting new agreements of $91,000,000 and $92,500,000 respectively.

The basis for these estimates has been established over time and experience. As a result of consulting with HRS’ repeat customers, a thorough understanding of their current and future needs, and a robust internal budgeting process, HRS is able to develop pricing and financial models that have given the PMO a strong financial footing. Challenges to the financial/pricing model include budgetary limitations of customer agencies, hiring freezes, continuing resolutions and other financial hardships that prohibit customers from timely funding agreements, and uncertainties related to the rollout, timing, and structure of GS-2210 special pay plan(s).

Earned Revenue Over Cost is used to reinvest in products and services for the PMO and/or to hold the revolving fund harmless in the event of liquidation. The HRS IT PMO is expected to have $12,000,000 in carryover funding in FY 2025. Those funds would be used in event of shut down to pay severance and other separation-pay benefits, career transition services, and other expenses associated with a shutdown (equipment liquidation, broken contracts/leases, etc.

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Credit Monitoring and Identity Protection Services

OPM continues to maintain the Credit Monitoring and Identity Protection Services Program, which was implemented following the cybersecurity incidents OPM announced in 2015. Pursuant to the Consolidated Appropriations Act, 2017 (P.L. 115-31), Section 633 of Division E, OPM is required to provide Credit Monitoring & Identity Protection Services (CM&IPS) through FY 2026 which includes not less than $5 million in identity theft insurance. Prior to FY 2020, this program was managed through the background investigations program performed by the former National Background Investigations Bureau of OPM.

Accordingly, OPM began offering these services to impacted individuals as of July 1, 2015. Currently, CM&IPS are provided by Identity Theft Guard Solutions, Inc., doing business as IDX, awarded under the General Service Administration’s Identity Protection Services (IPS) Multiple-Award Blanket Purchase Agreement (BPA). This award will have a possible full period of performance of five years, which will continue to provide coverage to all impacted individuals through June 2024.

CM&IPS costs consist of the contract described above as well as operational, management, and administrative costs. There are two funding sources for the program. OPM collects annually from the largest Federal agencies via an Inter-agency Agreement (IAA) based on a proportional allocation of the total program cost. The basis for distribution is the number of background investigations historically ordered by each agency. Additionally, fees are collected by the Enterprise Human Resource Integration (EHRI) program as part of the eOPF rates charged to agencies to fund the CM&IPS program.

The CM&IPS program provides a comprehensive suite of credit and identity monitoring, identity theft insurance, and identity restoration services. The FY 2025 costs are projected to be $98,398,169 for the following:

  • Credit Monitoring & Identity Protection Services – The BPA Call awarded to IDX included a one-year base period and four one-year option periods. There is a $5.2M increase budgeted for FY 2025 as the BPA Call will be recompeted and an increase in costs is anticipated.
  • Verification Center Operations – The Verification Center is provided through an assisted acquisition, funded by OPM, through an interagency agreement with DOD’s Defense Manpower Data Center (DMDC). There is a $300K increase budgeted for FY 2025 as the assisted acquisition contract was recompeted and the bids received were higher than for the previous contract.
  • Verification Letters – The determinations of impact status that are generated by the Verification Center are communicated to requestors by letter sent via the US Postal Service. Currently, DOD’s Defense Logistics Agency (DLA) prints and sends these notification letters. These letters include the 25-digit PIN which is necessary to enroll in in the services provided.
  • CM&IPS Program Office – In managing the CM&IPS Program there are additional administrative costs incurred related to salaries and benefits, training, and site visits. The CM&IPS program office consists of four FTEs, including labor by other offices throughout the agency which is charged to the CM&IPS program.

These activities are Congressionally mandated as they support the provision of comprehensive, complimentary identity protection coverage pursuant to P.L. 115-31.

Federal Executive Boards (FEB)

As described in the President’s FY 2023 Budget, agencies have been directed to contribute funds to OPM to support administration of the Federal Executive Board (FEB) program. The reinvigorated vision for FEBs and the new interagency funding model standardizes and enhances FEB programming across the Nation to assist agencies in strategic and collaborative efforts outside the Washington, DC area. The revitalized FEB program will utilize a shared funding model that uses annual proportional contributions from CFO Act Agencies based on the number of employees outside Washington D.C.

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Control Panel