BUDGET

JUSTIFICATION

FISCAL YEAR 2017

732 North Capitol Street, NW, Washington, DC 20401

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DAVITA VANCE-COOKS

Director of the U.S. Government Publishing Office

January 25, 2016

The Honorable Tom Graves

Chairman

Subcommittee on Legislative Branch Appropriations

Committee on Appropriations

U.S. House of Representatives

Washington, DC 20515

The Honorable Shelley Moore Capito

Chairwoman

Subcommittee on Legislative Branch Appropriations

Committee on Appropriations

U.S. Senate

Washington, DC 22150

Dear Chairman Graves and Chairwoman Capito:

I have the honor to transmit herewith the appropriations request of the U.S. Government 

Publishing Office (GPO) for FY 2017.

Strategic Outlook GPO is transforming from a print-centric to a content-centric publishing 

operation. Our implementation of a digital transformation is consistent with the goals 

outlined in President Obama’s Roadmap for a Digital Government (Digital Government: 

Building a 21st Century Platform to Better Serve the American People, May 2012). It is 

also consistent with the recommendations submitted by the National Academy of Public 

Administration (Rebooting the Government Printing Office: Keeping America Informed in the 

Digital Age, January 2013) regarding GPO’s transition to a digital future. In recognition of 

this transition, in 2014 Congress approved and the President signed into law (P.L. 113-235) a 

provision redesignating GPO as the Government Publishing Office.

In FY 2017 and the years ahead, GPO will continue to develop an integrated, diversified 

product and services portfolio that focuses primarily on digital. Although industry experts 

predict tangible print will continue to be required because of official use, archival purposes, 

authenticity, specific industry requirements, and segments of the population that either have 

limited or no access to digital formats, we recognize that the volume of tangible print that is 

requisitioned from GPO is declining and will continue to decline.

In transforming its business model, GPO is focusing on managing content for customer 

and public use both today and tomorrow. GPO uses its extensive experience and expertise 

to provide both digital public access to Government information in a variety of formats 

and the most efficient and effective means for printing when required, all within a secure 

setting that is responsive to the customer’s needs. GPO’s Strategic Plan has been developed 
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to carry out this vision and is available for public inspection in this budget justification 

document and at www.gpo.gov/about/.

Appropriations Request We are requesting funding for the Congressional Publishing 

Appropriation, the Public Information Programs of the Superintendent of Documents, 

and as an addition to working capital in GPO’s Business Operations Revolving Fund. The 

Congressional Publishing and Public Information Programs accounts fund GPO’s provision 

of congressional information products and services as authorized by law and our provision 

of public access to congressional and other Government information products through 

statutorily-authorized information dissemination programs.

All other GPO programs and activities – including the production of U.S. passports for the 

Department of State as well as secure credentials as requisitioned by Federal agencies, 

the production and procurement of other information products and services for Federal 

agencies, the sales of Government information products and services to the public, 

and related operations – are financed on a reimbursable basis through GPO’s Business 

Operations Revolving Fund, which is authorized through the annual Legislative Branch 

Appropriations bill. Our request includes funding as an addition to working capital for 

specified projects under the Business Operations Revolving Fund.

We are requesting a total of $117,068,000 for FY 2017. This is the same as the level of 

funding approved for FY 2016 in P.L. 114-113. Total GPO appropriations have declined 

by nearly 21% since FY 2010 and currently at their lowest level since then. Our continued 

transition to digital technologies and products has increased our productivity and reduced 

costs. Additionally, maintaining financial controls on our overhead costs, coupled with a 

buyout in FY 2015 that reduced GPO’s workforce by 103 positions, has helped make this 

funding request possible. Finally, the utilization of the unexpended balances of prior year 

appropriations, which we are able to transfer to GPO’s Business Operations Revolving Fund 

with the approval of the Appropriations Committees, has made it possible in recent years to 

hold the line on the level of new funding we request. 

Total Appropriations to GPO

 FY 2010-2016

Fiscal Year Appropriation

 2010 $147,461,000

 2011 135,067,324

 2012 126,200,000

 2013 117,533,423

 2014 119,300,000

 2015 119,993,000

 2016 117,068,000

DAVITA VANCE-COOKS

Director of the U.S. Government Publishing Office
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Our FY 2017 request will enable us to:

n	 meet projected requirements for GPO’s congressional publishing;

n	 fund the operation of the public information programs of the Superintendent of 

Documents; and

n	 develop information technology including IT security and perform facilities maintenance 

and repairs that support our congressional publishing and public information programs 

operations.

Congressional Publishing Appropriation We are requesting $79,736,000 for this account, 

the same level approved for FY 2016 in P.L. 114-113 and every year since FY 2014. This 

appropriation has declined by nearly 15% since FY 2010, as the result of our continuing 

transition to digital technology and products as well as actions taken in cooperation with 

the House of Representatives and the Senate to control congressional publishing costs. 

Unspent prior year balances from this account that have been transferred to GPO’s Business 

Operations Revolving Fund are available for the purposes of this account. 

Congressional Publishing Appropriation

 FY 2010-2016

Fiscal Year Appropriation

 2010 $93,768,000

 2011 93,580,464

 2012 90,700,000

 2013 82,129,576

 2014 79,736,000

 2015 79,736,000

 2016 79,736,000

House Report 114-110, accompanying the Legislative Branch Appropriations bill for 

FY 2016, requires the presentation of budget requirements from a zero base. However, 

GPO has no control over the workload requirements of the Congressional Publishing 

Appropriation. These are determined by the legislative activities and requirements of the 

House of Representatives and the Senate as authorized by the applicable provisions of 

Title 44, U.S.C. GPO utilizes historical data incorporating other relevant factors to develop 

estimates of likely congressional publishing requirements. These requirements are used as 

the basis of the budget presentation for this account.

The estimated requirements for FY 2017 include a projected price level increase of 

$2,125,000, primarily to cover employee pay increases equivalent with those paid 

government-wide. Offsetting this will be a $5,403,000 decrease in program requirements 

attributable to anticipated volume decreases for the Congressional Record, miscellaneous 

publications, miscellaneous publishing and services, business and committee calendars, and 

hearings. 

DAVITA VANCE-COOKS

Director of the U.S. Government Publishing Office
As shown on page E-4 of our budget justification for FY 2017, the unexpended balances 

of prior year appropriations that have been transferred to GPO’s Business Operations 

Revolving Fund will be used to offset anticipated requirements for FY 2016 and FY 2017, 

so that appropriation requirements for those years can remain stable at $79,736,000 each 

year. Compared to FY 2016, we project there will be a decrease of $3,278,000 in the need 

for this funding. The balance of these funds is earmarked for GPO’s critically important 

Composition System Replacement (CSR) project, involving the development of an XMLbased composition system to replace our 30+ year-old Microcomp system used in the 

preparation of congressional documents for digital and print access. 

Public Information Programs of the Superintendent of Documents We are requesting 

$29,500,000 for this account, representing a decrease of $1,000,000 or 3.3% from the amount 

approved for FY 2016 in P.L. 114-113. This appropriation has declined by more than 27% 

since FY 2010, as the result of our continuing transition to digital technology and products 

which has made the increased dissemination of official Government information to the 

public less costly and more efficient. The requested amount is based on the outcome of 

using zero-based budgeting to determine the proper levels of funding needed to perform 

program activities at minimum levels, as directed by House Report 114-110.

 Public Information Programs of the

Superintendent of Documents Appropriation

 FY 2010-2016

Fiscal Year Appropriation

 2010 $40,911,000

 2011 39,831,178

 2012 35,000,000

 2013 31,437,000

 2014 31,500,000

 2015 31,500,000

 2016 30,500,000

The funding we are requesting for FY 2017 will cover mandatory pay and related cost 

increases of $389,000. Merit and other pay increases are included for 94 FTE’s, the same 

as for FY 2016. In addition, the requested funding covers projected price level increases of 

$28,000, including ongoing systems maintenance and FDsys operating expenses. 

As with our Congressional Publishing Appropriation, unspent balances of prior year 

appropriations that have been transferred to GPO’s Business Operations Revolving Fund will 

be used to offset anticipated requirements for FY 2016 and FY 2017. These requirements 

include projects to continue transitioning GPO’s Public Information Programs to an 

increasingly digital basis, including the modernization of legacy IT systems, the replacement 

of GPO’s Integrated Library System, bulk harvesting and content management, enhanced 

Web-based applications, and the development of metadata and parsers for the digitized 

Congressional Record and Federal Register. The use of these funds enables GPO to reduce 

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DAVITA VANCE-COOKS

Director of the U.S. Government Publishing Office
its appropriations requirements while continuing to perform essential services and carry out 

digital transformation projects.

Business Operations Revolving Fund We are requesting $7,832,000 for this account, to 

remain available until expended, for information technology projects and necessary facilities 

projects. This compares with $6,832,000 that was appropriated for FY 2016. Funding provided 

to this account represents an increase to working capital for specified projects. Since FY 2013, 

these projects have consistently included improvements to GPO’s FDsys, which has expanded 

public access to congressional and other Government information products in digital formats 

while decreasing the costs of distributing traditional print formats, as well as other essential 

IT projects. Our request this year includes necessary expenses associated with enhancing the 

cybersecurity of GPO’s IT systems in the wake of successful cyberattacks this past year on 

the Office of Personnel Management and other Government systems. We also fund necessary 

physical infrastructure projects through appropriations to this account.

Appropriations to the Business Operations Revolving Fund

FY 2010-2016

Fiscal Year Appropriation

 2010 $12,782,000

 2011 1,655,682

 2012 500,000

 2013 3,966,847

 2014 8,064,000

 2015 8,757,000

 2016 6,832,000

Information Technology Projects for FY 2017 - $5,875,000

FDsys Projects - $4,175,000

n	 General System and Collection Development ($3,400,000) – Development of new FDsys 

features to support identified needs of key stakeholders, including developing new 

content collections, increasing content in existing collections, enhancing the accessibility 

of content, and increasing the discoverability of information.

n	 NextGen FDsys Public Website ($450,000) – Completion of development and switchover 

to FDsys NextGen to support a responsive user interface, search engine replacement, 

publication linking, user interface improvements, and content curation.

n	 FDsys Infrastructure ($325,000) – Infrastructure for the hardware, storage, and 

environments to manage system performance as FDsys content and usage continues to 

grow.

Information Technology Cybersecurity Projects - $1,700,000

n	 Security Enhancements for Advanced Persistent Threat ($1,500,000) – Required for 

enhanced technologies and services to combat, detect, and prevent advanced persistent 

threats (including sophisticated nation-state actors) from compromising GPO IT systems. 

7 3 2 N o r t h C a p i t o l S t r e e t , N W , W a s h i n g t o n , D C 2 0 4 0 1 - 0 0 0 1 I d v a n c e - c o o k s @ g p o . g o v

DAVITA VANCE-COOKS

Director of the U.S. Government Publishing Office
n Wireless Intrusion Prevention ($100,000) – Required to provide enhanced ability to

prevent and detect intrusion attempts specifically targeted at wireless systems at GPO.

n Log Collector (Tech Refresh) ($100,000) – Required to replace old and near obsolete log

collector systems in order to have sufficient audit trail logs for security investigations and

detection/prevention of intrusion attempts.

Facilities Infrastructure Projects for FY 2017 - $1,957,000

n Elevator Repairs ($1,000,000) – Elevators 39, 40, and 41 comprise the main vertical

artery for Plant Operations to move congressional products between Press and Bindery

operations. They also support employee life/safety by providing a means for evacuation

of medical emergencies.

n Emergency Power Generator ($500,000) – The power blackout by PEPCO in the summer

of 2015 exposed the need for an upgrade to GPO’s emergency generators to support

expanded lighting and other electrical requirements.

n Uninterrupted Power Supply for Data Center ($257,000) – The current UPS design and

equipment are both obsolete. To ensure uptime and equipment integrity in GPO’s data

center, these systems need to be replaced.

n Upgrade Electrical Panels/Wiring ($200,000) – This will address the obsolete and often

deteriorating condition of the central power distribution feeds that are original to the

GPO building complex (the newest building of which dates to 1940). The outdated

wiring represents a safety hazard.

Chairman Graves and Chairwoman Capito, we thank you for your continued support and

for the funding for GPO included in P.L. 114-113. We look forward to working with you and

your Subcommittees in your consideration of our appropriations request for FY 2017.

Sincerely,

DAVITA VANCE-COOKS

Director

Enclosure

cc: The Honorable Debbie Wasserman Schultz

Ranking Member

House Subcommittee on Legislative Branch Appropriations

The Honorable Brian Schatz

Ranking Member

Senate Subcommittee on Legislative Branch Appropriations

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DAVITA VANCE-COOKS

Director of the U.S. Government Publishing Office
Table of Contents

Executive Summary

Executive Summary and Results of FY 2015 Operations A-1

Organization and Staffing

Organization B-1

Functions by Organization B-2

Staffing Information B-3

Summary of Estimates

Summary of Appropriation Estimates C-1

Staffing Summary – FTEs C-2

Strategic Plan Framework D-1

Congressional Publishing

Base Budget Review E-1

Base Budget Review (Detail by Activity) E-3

Analysis of Change E-4

Explanation of Changes E-5

Object Class and Analysis of Change to Budget Base E-8

Estimated Cost per Unit by Category E-9

Volume Increase (Decrease) E-10

Congressional Billings for Committees By Category E-11

Details to Congress E-13

Public Information Programs of the Superintendent of Documents

Base Budget Review F-1

Analysis of Change F-3

Summary (by Program and Object Class) F-4

Business Operations Revolving Fund

Base Budget Review G-1

Analysis of Change G-4

Summary by Object Class G-5
A-1

Executive Summary and Results of FY 2015 Operations

The U.S. Government Publishing Office (GPO) is the OFFICIAL, DIGITAL, SECURE resource for 

producing, procuring, cataloging, indexing, authenticating, disseminating, and preserving the 

official information products of the Federal Government.

Under Title 44 of the U.S. Code, GPO is responsible for the production and distribution of 

information products for all three branches of the Government, including the official publications 

of Congress and the White House, U.S. passports for the Department of State, and the official 

publications of other Federal agencies and the courts. Once primarily a printing operation, we 

are now an integrated publishing operation and carry out our mission using an expanding range 

of digital as well as conventional formats. Congress and the President recognized this change in 

our operations in the Consolidated and Continuing Appropriations Act for FY 2015 (P.L. 113-235), 

which contains a provision re-designating GPO’s official name as the Government Publishing 

Office. GPO currently employs about 1,700 staff.

Along with sales of publications in digital and tangible formats to the public, GPO supports 

openness and transparency in Government by providing permanent public access to Federal 

Government information at no charge through our Federal Digital System (FDsys, at www.fdsys.

gov), which today makes more than 1 million Federal titles available online from both GPO and 

links to servers in other agencies. In 2015 FDsys averaged 47 million retrievals per month, with a 

spike up to 52.9 million retrievals in August 2015. We also provide public access to Government 

information through partnerships with 1,159 Federal, academic, public, law, and other libraries 

nationwide participating in the Federal Depository Library Program (FDLP).

In addition to GPO’s Web site, gpo.gov, we communicate with the public routinely via 

Facebook facebook.com/USGPO, Twitter twitter.com/USGPO, YouTube youtube.com/

user/gpoprinter, Instagram instagram.com/usgpo, LinkedIn linkedin.com/company/u.s.-

government-printing-office, and Pinterest pinterest.com/usgpo/.

History From the Mayflower Compact to the Declaration of Independence and the papers leading 

to the creation and ratification of the Constitution, America is a nation based on documents, and 

our governmental tradition since then has reflected that fact. Article I, section 5 of the Constitution 

requires that “each House shall keep a journal of its proceedings and from time to time publish 

the same.” After years of struggling with various systems of contracting for printed documents that 

were beset with scandal and corruption, in 1860 Congress created the Government Printing Office 

as its official printer. GPO first opened its doors for business on March 4, 1861, the same day 

Abraham Lincoln was inaugurated as the 16th President.

Since that time, GPO has produced and distributed the official version of every great American 

state paper and an uncounted number of other Government publications, documents, and forms. 

These documents include the Emancipation Proclamation, the legislative publications and acts 

of Congress, Social Security cards, Medicare and Medicaid information, census forms, tax forms, 

citizenship forms, passports, military histories ranging from the Official Records of the War of 

the Rebellion to the latest accounts of our forces in Afghanistan, the 9/11 Commission Report, 

Presidential inaugural addresses, and Supreme Court opinions. This work goes on today, in both 

digital as well as print forms.

U.S. GOVERNMENT PUBLISHING OFFICE FY 2017 APPROPRIATIONS JUSTIFICATION
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Strategic Vision GPO is transforming from a print-centric to a content-centric publishing 

operation. Our implementation of a digital transformation is consistent with the goals outlined 

in President Obama’s Roadmap for a Digital Government (Digital Government: Building a 21st 

Century Platform to Better Serve the American People, May 2012). It is also consistent with the 

recommendations submitted by the National Academy of Public Administration (Rebooting the 

Government Printing Office: Keeping America Informed in the Digital Age, January 2013) regarding 

GPO’s transition to a digital future. 

In FY 2017 and the years ahead, GPO will continue to develop an integrated, diversified product 

and services portfolio that focuses primarily on digital. Although industry experts predict tangible 

print will continue to be required because of official use, archival purposes, authenticity, specific 

industry requirements, and segments of the population that either have limited or no access to 

digital formats, we recognize that the volume of tangible print that is requisitioned from GPO is 

declining and will continue to decline.

Strategic Plan GPO’s strategic plan, which is available for public review at gpo.gov/about, is 

built around four goals: satisfying our stakeholders, offering products and services, strengthening 

our organizational foundation, and engaging our workforce. The plan provides the blueprint for 

how GPO will continue to achieve its mission of Keeping America Informed with an emphasis 

on being OFFICIAL, DIGITAL, SECURE. GPO’s senior managers convene at the beginning of each 

fiscal year to review the plan and approve it before it is issued. 

GPO’s customers are involved in the digital world and understand technological change. 

Accordingly, it is important that GPO fosters an environment that embraces change and 

innovation, which leads to new ways of thinking, new work processes, and the development 

of new products and services for GPO’s customers. Tangible printing at GPO is declining while 

there has been an exponential growth in digital requirements by Congress and Federal agencies. 

Moreover, the public – including the library and Government information user communities – has 

signaled its strong desire for increased access to Government information digitally. 

GPO has changed to anticipate and accommodate those requirements. The content received from 

Congress and Federal agencies needs to be managed through a life cycle process that supports 

the primary requirement to make the digital version of publications permanently available 

online, and to print only when required or otherwise necessary. This policy is consistent with the 

President’s executive order of November 2011 dealing with printing.

In transforming its business model, GPO is focusing on managing content for customer and 

public use both today and tomorrow. GPO uses its extensive experience and expertise with digital 

systems to provide both permanent public access to Government information in a variety of 

formats and the most efficient and effective means for printing when required, all within a secure 

setting that is responsive to the customer’s needs.

Technology Transformation GPO has continually transformed itself throughout its history 

by adapting to changing technologies. In the ink-on-paper era, this meant moving from handset to machine typesetting, from slower to high-speed presses, and from hand to automated 

bookbinding. These changes were significant for their time.

Yet those changes pale by comparison with the transformation that accompanied our 

incorporation of electronic information technologies, which began more than 50 years ago in 

1962 when the Joint Committee on Printing directed the agency to implement a new system 

of computer-based composition. That order led to the development of GPO’s first electronic 

photocomposition system, which by the early 1980’s had completely supplanted machine-based 

hot metal typesetting. Following the enactment of the GPO Electronic Information Access 

Enhancement Act in 1993, the databases generated by our composition system were uploaded 
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to the Internet via GPO’s first Web site, GPO Access, vastly expanding the agency’s information 

dissemination capabilities. Those functions continue today with FDsys on a more complex and 

comprehensive scale.

While transforming to an increasingly digital footing, GPO continues to provide an array of 

printing services to support the needs of Congress, Federal agencies, and the public. GPO is 

retooling its print operations to utilize a smaller, more flexible, more digitally-based equipment 

profile than previously. In FY 2015 we put into operation our new zero make-ready (ZMR) press 

to support congressional and Federal agency publishing requirements. As previously reported, 

this new press will allow us to eventually phase out 3 outdated presses installed in 1979. We are 

continually reviewing product and equipment options to ensure that our publishing activities are 

conducted with the most efficient, effective technologies available.

As a result of these sweeping technology changes — digital products, equipment, and processes -- 

GPO is now fundamentally different from what it was as recently as a generation ago. It is smaller, 

leaner, and equipped with digital production capabilities that are the bedrock of the information 

systems relied upon daily by Congress, Federal agencies, and the public to ensure open and 

transparent Government in the digital era. As we prepare GPO for the Government information 

environment and technology challenges of the future, our transformation is continuing with the 

development of new ways of delivering Government information, including apps and bulk data 

download files.

GPO and Congress

For the Clerk of the House, the Secretary of the Senate, and the committees of the House and the 

Senate, GPO publishes the documents and publications required by the legislative and oversight 

processes of Congress in digital and tangible formats. This includes the daily Congressional 

Record, bills, reports, legislative calendars, hearings, committee prints, and documents, as well as 

stationery, franked envelopes, memorials and condolence books, programs and invitations, phone 

books, and the other products needed to conduct the business of Congress. We also detail expert 

staff to support the publishing requirements of House and Senate committees and congressional 

offices such as the House and Senate Offices of Legislative Counsel. We work with Congress to 

ensure the provision of these services under any circumstances.

Today the activities associated with creating congressional information databases comprise 

the majority of the work funded by our annual Congressional Publishing Appropriation. Our 

advanced digital authentication system, supported by public key infrastructure (PKI), is an 

essential component for assuring the digital security of congressional publications. The databases 

we build are made available for providing access to congressional publications in digital formats 

as well as their production in tangible formats. 

GPO’s congressional information databases also form the building blocks of other information 

systems supporting Congress. For example, the databases are provided directly to the Library of 

Congress (LOC) to support its Congress.gov system as well as the legislative information systems 

LOC makes available to House and Senate offices. We work with LOC to prepare summaries and 

status information for House and Senate bills in XML bulk data format. We are also collaborating 

with LOC on the digitization of historical printed documents, such as the Congressional Record, to 

make them more broadly available to Congress and the public.

GPO Cuts the Cost of Congressional Work The use of electronic information technologies 

by GPO has been a principal contributor to lowering the cost, in real economic terms, of 

congressional information products. In FY 1980, as we replaced hot metal typesetting with 

electronic photocomposition, the appropriation for Congressional Publishing was $91.6 million, 

the equivalent in today’s dollars of $264 million. By comparison, our approved funding for FY 
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2016 is $79.7 million, a reduction of nearly 70% in constant dollar terms, with a 22% reduction 

since FY 2010 alone. FY 2016 is the third consecutive year that approved funding for GPO’s 

Congressional Publishing Appropriation has been flat.

Congressional Publishing Appropriation

FY 1980-2016

Fiscal Year Appropriation In Constant Dollars

1980 $ 91.6 million $ 264.4 million

1985 94.0 million 207.8 million

1990 74.1 million 134.9 million

1995 84.7 million 132.3 million

2000 73.3 million 101.2 million

2005 88.1 million 107.3 million

2010 93.8 million 102.3 million

2016 79.7 million 79.7 million

Productivity increases resulting from technology have enabled us to make substantial reductions 

in staffing requirements while continuing to improve services for Congress. In 1980, GPO 

employment was 6,450. At the beginning of FY 2016, following a buyout conducted early in FY 

2015 that reduced GPO employment by approximately 100 positions, we had 1,711 employees 

on board, representing a reduction of 4,739, or more than 73%, since 1980. This is the smallest 

GPO workforce of any time in the past century.

GPO Employment

FY 1980-2016

 Fiscal Year Headcount

1980 6,450

1985 5,383

1990 4,977

1995 3,956

2000 3,139

2005 2,344

2010 2,284

2016 1,711

Highlights of FY 2015 Congressional Work During the year, GPO released the Mobile 

Member Guide app for the 114th Congress. This mobile Web app provides the public with quick, 

easy access to information on Members of the 114th Congress; features include their picture, 

party affiliation, hometown, home state, and length of service. The app allows users to browse for 

Members of Congress by last name, State, chamber, or party. The public can take advantage of this 

free mobile Web app on major mobile device platforms.

At the direction of the U.S. House of Representatives Appropriations Committee, and in support of 

the Legislative Branch Bulk Data Task Force, GPO, LOC, the Clerk of the House, and the Secretary 

of the Senate worked throughout 2015 to make bill statuses in XML format available through 

the GPO’s FDsys Bulk Data repository starting with the 113th Congress. At launch in early 2016, 

the FDsys Bulk Data repository for Bill Status information will be available at gpo.gov/fdsys/

bulkdata/BILLSTATUS. The announcement of this new information availability drew praise from 

various legislative openness and transparency advocates (see, for example, congressionaldata.

org/congress-poised-for-leap-to-open-up-legislative-data/; and fiercegovernmentit.

com/story/bill-statuses-xml-coming-early-2016-says-congress/2015-12-17).

During the year, GPO joined GitHub, the Web-based computer source code sharing and 

publishing service used worldwide to collaborate on code, data, and policy. GPO’s presence on 
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GitHub was welcomed by those in the legislative openness and transparency community who 

are interested in how legislative content is created, processed, stored, and made available to the 

public via FDsys. Through GitHub, GPO provides documentation on a fair and equal basis to the 

developer community about the process used to create FDsys metadata for legislative as well as 

executive and judicial content collections. It can also be used to provide documentation about the 

FDsys sitemap implementation and supporting resources that are currently available on the FDsys 

Bulk Data Repository (e.g., User Guides).

GPO is now a regular participant and presenter at the House Legislative Data and Transparency 

Conference, along with staff from other legislative branch agencies, data users, and transparency 

advocates.

GPO is in the process of developing a new XML-based automated composition system to 

replace our now-outdated Microcomp system. This effort is known as the Composition System 

Replacement (CSR) project. During 2015, the CSR development team made significant progress 

toward the introduction of a beta system for the composition of congressional bills coincident 

with the opening of the 115th Congress in January 2017. Work during 2015 included the 

development of code that prepares XML bills for printing, paragraph-level styles and page 

layouts, table functionality, and font development. Contracts were awarded that augment CSR 

development staff with resources that have a high level of expertise in specialized system areas 

and components. The CSR team is working closely with House and Senate staff to ensure that CSR 

integrates seamlessly with specific authoring environments that are currently utilized for bills.

Congressional hearings are a major product produced on GPO’s new ZMR press. By the 

year’s end, the efficiency of the new press led GPO to reduce the prices charged for printing 

congressional hearings by 7%, the first such page rate reduction in many years. This rate 

reduction alone will generate an estimated savings of $1.3 million in the Congressional Publishing 

Appropriation.

GPO and Federal Agencies

Federal agencies are major generators of information in the United States, and GPO produces 

their information products for official use and public access. Federal agencies and the public also 

rely on a growing variety of secure credentials produced by GPO, including travelers holding 

U.S. passports, members of the public who cross our borders frequently, and other users. Our 

digital systems support key Federal agency publications, including the annual Budget of the U.S. 

Government (Budget) and, most importantly, the Federal Register and associated products. As it 

does for congressional documents, our digital authentication system, supported by public key 

infrastructure (PKI), assures the digital security of agency documents.

Highlights of FY 2015 Agency Operations Since 2012, GPO has made the annual Budget of 

the U.S. Government available as a mobile app. The FY 2016 Budget app, released in January 2015, 

provided users with access to the text and images of the Budget, including the Budget Message 

of the President, information on the President’s priorities, and budget overviews organized by 

agency. The app provides links to GPO’s FDsys where summary tables and additional books of 

the Budget, including the Analytical Perspectives, Appendix, and Historical Tables are available. 

The complete, authentic online version of the Budget is also regularly made available through a 

direct link on FDsys. 

One of GPO’s major agency customers is the Office of the Federal Register (OFR), a unit of the 

National Archives and Records Administration (NARA), which produces the daily Federal Register 

and related publications such as the Code of Federal Regulations, and other key information 

products like the Daily Compilation of Presidential Documents and the Public Papers of the 

President. GPO produces these publications in both digital and tangible formats.
A-6

During 2015, GPO partnered with the OFR to make the electronic Code of Federal Regulations

(eCFR) available in XML format for bulk data download from FDsys (gpo.gov/fdsys/bulkdata/

ECFR). The eCFR is an editorial compilation of CFR material and Federal Register amendments 

published by the OFR and GPO. The OFR updates the material in the eCFR on a regular basis 

and can be as frequent as every day. With this new initiative, the OFR provides eCFR files to GPO 

and then GPO converts files into XML. The eCFR bulk data allows for a “one-click” download 

of the current XML file for each of the titles in the eCFR. Bulk data downloads of eCFR data in 

XML format permits the data to be reused and repurposed for mobile web applications, data 

mashups, and other analytical tools by third party providers, which contributes to openness and 

transparency in Government.

During the year, GPO also finalized plans with NARA to have the OFR move into approximately 

17,000 square feet of space on the seventh floor of GPO’s Building A during 2016, and 

construction of the OFR’s new offices began. Co-location of the OFR with GPO will reduce costs 

and streamline the publishing process for OFR publications.

Surveys of GPO’s Federal agency customers in recent years have consistently reported high rates 

of satisfaction with our products, services, and programs, the cost-effectiveness of GPO’s services, 

and satisfaction with GPO’s Web site and customer service. These results buttress the emphasis 

on a customer-centric approach through GPO’s procedures, policies, and activities. In 2015 GPO 

held its annual Customer Service open house focusing on Federal publishing solutions available to 

agency representatives from Washington, DC and around the Nation.

Among the significant products produced by GPO for Federal agencies in 2015 were the 

Department of State’s annual Trafficking in Persons report; the development of the Department 

of Commerce’s new user-friendly, mobile-optimized Web site, which serves as a platform to be 

used by other Commerce entities; and various materials associated with the visit of Pope Francis 

to Washington in September, including the official White House program for 15,000 guests to the 

South Lawn Ceremony with the Pope and President and Mrs. Obama. First Lady Michelle Obama 

publicly thanked GPO for its work on the White House program on her Instagram and Twitter 

pages. 

Partnership with Industry Other than congressional and inherently governmental work such as 

the Federal Register, the Budget, and security and intelligent documents, GPO produces virtually 

all other Federal agency information products via contracts with the private sector printing and 

information product industry issued by our central office and regional GPO offices around the 

country. In 2015, this work was valued at approximately $338 million. Approximately 17,600 

individual firms are registered to do business with GPO, the vast majority of whom are small 

businesses averaging 20 employees per firm. Contracts are awarded on a purely competitive 

basis; there are no set-asides or preferences in contracting other than what is specified in law 

and regulation, including a requirement for Buy American. This partnership provides significant 

economic opportunity for the private sector.

In recent years, the decline in print government-wide has reduced the amount of work we 

produce through this partnership, the result of the ongoing transformation of Federal agency 

information requirements from print to digital, the President’s initiative to reduce Federal printing, 

and to some extent funding reductions such as sequestration. However, in FY 2015 GPO saw 

an increase of 15.2% in print procurement business compared with the previous year. GPO’s 

partnership with the print and information product industry achieves significant savings and 

efficiencies for the work that it continues to produce and in the process generates private sector 

jobs nationwide.

GPO has long advocated that where Federal agency printing is required, this partnership is the 

most cost-effective way of producing it. We were interested to see the results of a Government 

Accountability Office study, conducted at the request of the Joint Committee on Printing and 

completed in 2013, which identified approximately 80 Federal printing plants still in operation 
A-7

government wide. Additional savings for taxpayers could occur if the work these plants are 

producing is transferred instead to GPO’s partnership with the private sector printing and 

information product industry. 

Security and Intelligent Documents For nearly a century GPO has been responsible for 

producing the U.S. passports for the Department of State (DOS). At one time, no more than a 

conventionally printed document, the U.S. passport since 2005 has incorporated a digital chip 

and antenna array capable of carrying biometric identification data. With other security printing 

features, this document – which we produce in Washington, DC, as well as a secure remote 

facility in Mississippi – is now the most secure identification credential obtainable, and over the 

past decade GPO has produced over 100 million e-Passports for DOS. Throughout 2015, we 

continued with facility changes and equipment installation and testing in support of the planned 

next generation passport.

Since 2008, GPO has also served as an integrator of secure identification smart cards to support 

the credentialing requirements of Federal agencies and other Government entities. In 2010, GPO 

was certified by the General Services Administration (GSA) to graphically personalize Homeland 

Security Presidential Directive 12 (HSPD-12) cards for Federal agencies. GSA certified that GPO 

complies with the Federal Information Processing Standard 201, which sets requirements to ensure 

that identification cards are secure and resistant to fraud. 

To date, GPO has produced over 9 million secure credential cards across 15 different product 

lines. Among these products are the Trusted Traveler Program’s (TTP) family of border crossing 

cards – NEXUS, SENTRI, FAST, and Global Entry – for the Department of Homeland Security 

(DHS), which are used by frequent travelers across U.S. borders. Another card produced for DHS 

is the Transportation Worker Identity Card (TWIC). GPO produces a Border Crossing Card (BCC) 

that is issued by DOS for authorized travel across the Mexican border. GPO also has produced 

secure law enforcement credentials for the U.S. Capitol Police that were used in the 2009 and 2013 

Presidential inaugurations. 

During 2015, a milestone was achieved in the production of secure border credentials for DHS. 

GPO employees have produced 5 million TTP cards for the Department’s U.S. Customs and 

Border Protection (CBP). The TTP provides expedited entry process for pre-approved, low-risk 

travelers upon arrival in the United States under the Western Hemisphere Travel Initiative. Since 

their introduction in 2008, GPO and CBP have successfully manufactured these secure credentials 

for members of the various TTP programs without a single compromise in security nor a fruitful 

counterfeit attempt. “CBP-TTP chose the GPO to manufacture their TTP program cards due to the 

GPO’s experience and secure supply chain,” said Deputy Assistant Commissioner John P. Wagner, 

Office of Field Operations, CBP. “The GPO is an in-house government cataloging, producing, and 

publishing agency, which means that their manufacturing processes are more secure and less 

susceptible to counterfeiting since no sensitive information is ever exchanged with a third party 

vendor, as previous official identification documents have been.” 

Pursuant to a 2014 request from the Chairman of the Joint Committee on Printing as well as a 

mandate in Senate Report 113-196, which accompanied the fiscal year 2015 legislative branch 

appropriations bill, the Government Accountability Office (GAO) reviewed GPO’s secure 

credential program and issued its report in 2015.

The GAO’s report, Government Publishing Office: Production of Secure Credentials for the 

Department of State and U.S. Customs and Border Protection, issued in March 2015 (gao.gov/

products/GAO-15-326R), specifically addressed GPO’s production of the BCC for DOS and TTP 

cards for DHS. The report answered the following questions: (1) what factors did DOS and DHS 

consider in selecting GPO to obtain their secure credentials? and (2) how does GPO produce and 

ensure the quality of its secure credentials?
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Concerning the BCC, the GAO found that DOS considered GPO’s experience producing the DHS’s 

TTP credentials; the favorable experience DOS has had in working with GPO for the production 

of the e-Passport; the benefits of interagency coordination and collaboration; GPO’s redundant 

GPO production facilities; and GPO’s pricing, specifically that “procurement of BCCs from GPO 

could result in a potential cost saving to State of over $1 million during the first year of GPO 

production based on State’s annual volume of need” (emphasis added). 

With regard to the TTP credentials, GAO found that DHS considered GPO’s experience 

producing the e-Passport; GPO’s secure supply chain; the benefits of interagency collaboration 

and coordination; and GPO’s pricing, specifically that “the pricing offered by GPO for TTP card 

production was favorable compared to the option of upgrading their existing in-house production 

capabilities or sourcing production to a private sector entity...” (emphasis added).

GPO and Open, Transparent Government 

Producing and distributing the official publications and information products of the Government 

fulfills an informing role originally envisioned by the Founders, as James Madison once said:

“A popular Government without popular information, or the means of acquiring it, is 

but a Prologue to a Farce or a Tragedy, or perhaps both. Knowledge will forever govern 

ignorance, and a people who mean to be their own Governors, must arm themselves 

with the power which knowledge gives.”

GPO operates a variety of programs that provide the public with “the means of acquiring” 

Government information that Madison spoke of. These programs include the Federal Depository 

Library Program (FDLP), Federal Digital System (FDsys), Publications Sales, and Social Media.

Federal Depository Library Program The FDLP has legislative antecedents that date back more 

than 200 years, to 1813, when Congress authorized congressional documents to be deposited 

at the American Antiquarian Society in Worcester, MA. Since then, Federal depository libraries 

have served as critical links between “We the People” and the information made available by the 

Federal Government. GPO provides the libraries with information products in digital and, in some 

cases, tangible formats, and the libraries in turn make these available to the public at no charge 

while providing additional assistance to depository library users.

The FDLP today serves millions of Americans through a network of 1,159 public, academic, law, 

and other libraries located across the Nation, averaging nearly three per congressional district. 

Once limited to the distribution of printed and microfiche products, the FDLP today is primarily 

digital, supported by FDsys and other digital resources. This overwhelming reliance on digital 

content allowed for the first digital-only Federal depository library designation in 2014. In 2015, 

4 new Federal depository libraries were designated as digital-only, while 8 existing depository 

libraries converted to all-digital status. 

The FDLP launched an updated and redesigned version of Ben’s Guide to the U.S. Government

in 2015. This Web site, named after Benjamin Franklin and available at bensguide.gpo.gov, 

contains educational content on the workings of the U.S. Government and U.S. history. The 

updated site features new and enhanced content, a mobile device-friendly infrastructure, and 

a modernized look and feel that has been optimized for an intuitive learning experience. The 

FDLP partnered with the American Association of School Librarians (AASL), a division of the 

American Library Association (ALA), to ensure educational content is easy to comprehend and age 

appropriate.

Supporting Federal depository libraries and the public nationwide is the work GPO does under its 

statutory mandate to catalog and create a comprehensive index of the public documents issued or 
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published by the Federal Government that are not confidential in character. The public interface 

for accessing these cataloging records is GPO’s Catalog of U.S. Government Publications (CGP), 

which is available online at catalog.gpo.gov. In FY 2015, there were more than 23.6 million 

successful searches of the CGP, a decrease of 2 million from FY 2014. Also during this period, 

more than 19,000 new cataloging records were added to the CGP. In 2015, GPO was once again 

named one of the top online original catalogers in the world in the annual report of the OCLC for 

the year. And during the year, GPO added more than 11,000 original records for U.S. Government 

information products to WorldCat, the world’s largest network of library content and services.

Late in the year, GPO became the first Federal agency member of the Technical Report Archive 

& Image Library (TRAIL, at crl.edu/grn/trail/about-trail). TRAIL identifies, acquires, catalogs, 

digitizes, and provides unrestricted access to U.S. Government agency technical reports. TRAIL 

currently consists of over three dozen member institutions, many of which are Federal depository 

libraries. GPO and TRAIL have a shared goal of advancing free public access to U.S. Government 

information and will now work together to ensure the discoverability, ensuring permanent public 

access to, and the preservation of Government technical reports. As a member of TRAIL, GPO will 

offer expertise and guidance in cataloging and other areas. 

Federal Digital System GPO has been providing access to digital congressional and Federal 

agency documents since 1994, beginning with a site known as GPO Access. Fifteen years later, 

GPO Access was retired and a significantly re-engineered site debuted as GPO’s Federal Digital 

System. Today, FDsys provides the majority of congressional and Federal agency content to 

the FDLP as well as other online users. Online access to Federal documents provided by GPO 

has reduced the cost of providing public access to Government information significantly when 

compared with print, while expanding public access dramatically through the Internet.

Public utilization of FDsys has increased substantially over the years. In 2015, FDsys averaged 47 

million retrievals per month, an increase of more than 23% over the previous year, with a spike 

up to 52.9 million retrievals in August.

GPO is continually adding collections to FDsys to provide increased public access to Government 

information. In FY 2015, new collections added included the historic Warren Report on the 

assassination of President Kennedy and the eCFR. In September, GPO and the Federal Judiciary 

were recognized with a 2015 Digital Government Achievement award in the Government-toGovernment category for providing the public digital access to 1.4 million Federal court opinions 

via FDsys. Since the program began in 2011, there have been more than 300 million retrievals of 

opinions from 104 Federal courts.

Late in the fiscal year, GPO announced a new partnership with the Office of the Federal Register 

to make every issue of the Federal Register since it began publication in 1936 digitally available 

to the public. A total of 14,587 individual issues will be digitized. GPO employees will hand pack 

and catalog every issue. The project complements a similar effort underway with the Library of 

Congress to digitize every issue of the Congressional Record since that title’s inception in 1873. 

FDsys Improvements Planned for FY 2017 As GPO’s enterprise information management 

system for digital information dissemination and preservation, FDsys is a critical component of 

our integrated publishing operation. Continued investment in this cornerstone system is needed in 

order to ensure FDsys technology, features, and functionality supports GPO’s mission and meets 

the needs of key stakeholders, including Congress, Federal agencies, and the American public.

In 2016, the Next Generation FDsys public Web site (NextGen) will officially launch and the 

legacy site will be retired. NextGen functionality will greatly enhance the way stakeholders can 

interact with FDsys, including a responsive user interface, replacement of the current search 

engine with an Open Source search engine, the implementation of linking between related 

publications, and user interface improvements based on extensive stakeholder engagement. 
A-10

Along with the launch of NextGen, other initiatives are crucial for managing Federal Government 

content in FDsys, including developing new content collections, increasing content in existing 

collections, enhancing the accessibility of content, and increasing the discoverability of 

information within the system. Throughout 2015, GPO conducted previews of NextGen for users 

in the library community and congressional staff.

GPO also has begun the process to seek certification for FDsys as a Trustworthy Digital 

Repository in compliance with the International Organization for Standardization (ISO 16363). This 

certification will validate that FDsys, its infrastructure, and its supporting organization are reliable 

and sustainable, in order to ensure the highest level of service now and into the future.

With the planned updates to the FDsys search, content management, and preservation 

components and along with certification of FDsys as a Trusted Digital Repository, it is also critical 

to invest in the IT infrastructure supporting the system. This includes bandwidth, storage, and 

servers needed for the Production, Continuity of Operations (COOP), Test, and Development 

environments. In FY 2016, GPO will also explore how to migrate FDsys to the Cloud to reduce 

reliance on on-site physical infrastructure.

GPO Achieves Savings in Information Dissemination In 1995, the first full year of our online 

operations, the cost of producing and distributing millions of copies of printed publications to 

Federal depository libraries nationwide was funded at $17.6 million, the equivalent today of $27.4 

million in constant dollars. For FY 2017, we are proposing to fund this function at $8 million, a 

reduction of more than 70% in constant dollar terms. Along with appropriations to GPO’s Business 

Operations Revolving Fund, we have used the savings from reduced printing and distribution 

costs to pay for the establishment and operation of our digital information dissemination 

operations, achieving additional savings for the taxpayers and vastly expanding public access to 

Government information. 

Number of Titles Available Online through GPO

(Includes titles on GPO servers and titles linked from GPO)

FY 2000-2016

 Year Number of Titles

FY 2000 193,000

FY 2005 301,600

FY 2010 441,700

FY 2016 1,554,000

Publication and Information Sales Program Along with the FDLP and FDsys, which are 

no-fee public access programs, GPO provides public access to official Federal information through 

public sales featuring secure ordering through an online bookstore (bookstore.gpo.gov), a 

bookstore at GPO headquarters in Washington, DC, and partnerships with the private sector 

that offer Federal publications as eBooks. As a one-stop shop for eBook design, conversion, and 

dissemination, our presence in the eBook market continues to grow. We now have agreements 

with Apple, Google’s eBookstore, Barnes & Noble, OverDrive, Ingram, Zinio, and other online 

vendors to make popular Government titles such as the Public Papers of the President-Barack 

Obama, the Financial Crisis Inquiry Report, and Ponzimonium: How Scam Artists are Ripping 

Off America available as eBooks. We also offer a print-on-demand service for sales titles, which 

enables us to offer more titles and avoid the expense of additional warehousing.

Reimbursable Distribution Program We operate distribution programs for the information 

products of other Federal agencies on a reimbursable basis, including General Services 

Administration (GSA) Consumer Information Center publications, from warehouses in Pueblo, CO, 

and Laurel, MD. 
A-11

GPO and Social Media We have been using Facebook, Twitter, YouTube, Instagram, LinkedIn, 

Pinterest, and a blog to share information about GPO news and events and to promote specific 

publications and products. By the end of 2015, we had 5,500 likes on Facebook, 5,700 followers 

on Twitter, and 145,000 views across 71 videos on YouTube. On Pinterest, we had 548 followers 

pinning on 17 boards of Federal Government information. We added Instagram and LinkedIn 

to GPO’s social media portfolio in 2015 and by year’s end had 511 followers with 400 posts 

on Instagram and 2,700 followers on LinkedIn. Our blog, Government Book Talk, focuses on 

increasing the awareness of new and classic Federal publications through reviews and discussions.

GPO Finances

Revolving Fund All GPO activities are financed through our Business Operations Revolving 

Fund. This business-like fund is used to pay all of GPO’s costs in performing congressional and 

agency publishing, information product procurement, and publications dissemination activities. 

It is reimbursed from payments from customer agencies, sales to the public, and transfers from 

GPO’s two annual appropriations: the Congressional Publishing Appropriation and the Public 

Information Programs of the Superintendent of Documents Appropriation. 

The Business Operations Revolving Fund functions as GPO’s checking account with the U.S. 

Treasury. GPO pays its expenses from this account either with electronic transfer or check. The 

fund is reimbursed when the Treasury Department transfers money from agency appropriations 

accounts to the fund when agencies pay GPO invoices. This procedure also applies to the 

payment of transfers from the Congressional Publishing and Public Information Programs 

appropriations, and to deposits of funds collected from sales to the public.

GPO maintains a cash balance in the Business Operations Revolving Fund that is used to 

pay all expenses. The cash balance fluctuates daily as payments are received from agency 

reimbursements, customer payments, and transfers from GPO appropriations.

Retained Earnings GPO’s system of accrual accounting, annual earnings generated since 

the inception of the Business Operations Revolving Fund have been accumulated as retained 

earnings. Retained earnings make it possible for GPO to fund a significant amount of technology 

modernization. However, appropriations for essential investments in technology and plant 

upgrades are also necessary and are requested annually.

Appropriated Funds GPO’s Congressional Publishing Appropriation is used to reimburse 

the Business Operations Revolving Fund for costs of publishing the documents required 

for the use of Congress in digital and tangible formats, as authorized by the provisions of 

chapters 7 and 9 of Title 44, U.S.C. The Public Information Programs of the Superintendent of 

Documents Appropriation is used to pay for costs associated with providing online access to, 

and the distribution of, publications to Federal depository libraries, cataloging and indexing, 

statutory distribution, and international exchange distribution. The reimbursements from these 

appropriations are included in the Business Operations Revolving Fund as revenue for work 

performed.

Unlike most appropriations to other Federal agencies, these two appropriations are for work 

that GPO itself does not control. The Congressional Publishing Appropriation in effect is an 

appropriation by Congress to cover the costs of its publishing activities. The appropriation is 

made to GPO to relieve Congress of the burden of maintaining detailed accounting records for all 

publishing work ordered from GPO both by law and by other congressional requisitions, as well 

as the responsibility for estimating the anticipated volume of congressional publishing that is used 

as the basis for the appropriation.
Congress plays a major role in controlling the rate of spending of the Congressional Publishing 

Appropriation. GPO can transfer funds from the appropriation to the Business Operations 

Revolving Fund only when it performs congressional publishing work. The appropriation is not 

available for expenditure for any purposes other than this work. While GPO does its best to 

estimate the volume of congressional publishing in any given year, that volume can change due 

to circumstances beyond GPO’s control. GPO affects the rate of spending under this appropriation 

by ensuring the efficiency of its operations.

If congressional requisitions fall short of GPO’s estimate, there will be a balance remaining in 

the Congressional Publishing Appropriation at the end of the year. Under the language of GPO’s 

appropriations legislation, such balances are eligible for transfer to the Business Operations 

Revolving Fund, where they can be used only for the purposes for which they were originally 

appropriated, with the approval of the House and Senate Appropriations Committees. If 

Congress’s requirements exceed GPO’s estimate, GPO will continue to fulfill them, and Congress 

will in effect spend more than it appropriated. As a result, there will be a shortfall in the 

appropriation for which GPO would need additional funding in a subsequent year. The shortfall 

would be paid out of available money—retained earnings—in the Business Operations Revolving 

Fund that otherwise would be available for investment in new plant and equipment. When 

shortfalls occur, Congress subsequently repays GPO for the excess cost of its printing to restore 

money to the Business Operations Revolving Fund.

Like the Congressional Publishing Appropriation, the Public Information Programs Appropriation 

is available only for specific programs: online access and distribution to Federal depository 

libraries, cataloging and indexing, statutory distribution, and international exchange. The 

publishing activities of the Government determine the workload handled by these programs, not 

GPO. However, GPO affects the level of funding by ensuring the efficiency of its information 

dissemination operations. Like the Congressional Publishing Appropriation, any unobligated 

balances remaining in this account may be transferred to the Business Operations Revolving Fund, 

where they can be used only for the purposes for which they were originally appropriated, with 

the approval of the House and Senate Appropriations Committees.

GPO is accountable for its finances. Each year, GPO’s finances and financial controls are audited 

by an independent outside audit firm working under contract with GPO’s Office of Inspector 

General. For FY 2015, the audit concluded with GPO earning an unqualified, or clean, opinion on 

its finances, the 19th consecutive year GPO has been provided with such an audit result. 

FY 2015 Financial Results Revenue totaled $773.4 million while expenses charged against 

GPO’s budget were $735.8 million, for an overall net income of $37.6 million from operations. 

Included in both GPO’s revenue and net income is approximately $15.3 million in funds set 

aside for passport-related capital investments, as agreed to by GPO and the Department of State, 

and $4.6 million in funds resulting from a downward adjustment to GPO’s long-term workers’ 

compensation liability under the Federal Employees Compensation Act (FECA). Apart from these 

funds, GPO’s net operating income from FY 2015 was $17.6 million.

Funds appropriated directly by Congress provided nearly $106.6 million (including funds from 

the Congressional Publishing and Public Information Programs appropriations, along with 

appropriations to the Business Operations Revolving Fund), or about 14% of total revenue. All 

other GPO activities, including in-plant publishing (which includes the production of passports), 

procured work, sales of publications, agency distribution services, and all administrative support 

functions, were financed through the Business Operations Revolving Fund by revenues generated 

by payments from agencies and sales to the public. 

The largest single component of GPO’s annual expenses is publishing work procured from the 

private sector. In FY 2015, the cost of this work totaled $305.8 million, or about 42% of total 

expenses. The second largest component was personnel compensation and benefits. These totaled 

$202.2 million, or about 27% of all expenses.

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FY 2017 Appropriations Request

GPO is requesting a total of $117,068,000 for FY 2017, which is the same as the level of funding 

approved for FY 2016 in P.L. 114-113. Continuing overhead controls in addition to a buyout 

successfully conducted in the first quarter of FY 2015 that reduced GPO’s workforce by 103 

positions have helped make this funding request possible. Additionally, with the approval of the 

House and Senate Appropriations Committees, each year we have transferred any unspent prior 

year balances from our appropriations to GPO’s Business Operations Revolving Fund, where 

they are available for the uses for which they were originally appropriated. This also has made it 

possible for us to maintain a flat funding level.

Our FY 2017 request will enable us to:

n	 meet projected requirements for congressional publishing;

n	 fund the operation of the public information programs of the Superintendent of Documents; 

and

n	 develop information technology including IT security and perform facilities maintenance and 

repairs that support congressional publishing and public information programs operations.

Congressional Publishing Appropriation We are requesting $79,736,000 for this account, the 

same level approved for FY 2016 in P.L. 114-113. Unspent prior year balances from this account 

that have been transferred to GPO’s Business Operations Revolving Fund are available for the 

purposes of this account. 

Congressional Publishing Appropriation

FY 2010-2016

Fiscal Year Appropriation

 2010 $93,768,000

 2011 $93,580,464

 2012 $90,700,000

 2013 $82,129,576

 2014 $79,736,000

 2015 $79,736,000

 2016 $79,736,000

House Report 114-110, accompanying the Legislative Branch Appropriations bill for FY 2016, 

requires the presentation of budget requirements from a zero base. However, GPO has no 

control over the workload requirements of the Congressional Publishing Appropriation. These 

are determined by the legislative activities and requirements of the House of Representatives and 

the Senate as authorized by the applicable provisions of Title 44, U.S.C. GPO utilizes historical 

data incorporating other relevant factors to develop estimates of likely congressional publishing 

requirements. These requirements are used as the basis of the budget presentation for this 

account.

The estimated requirements for FY 2017 include a projected price level increase of $2,125,000, 

primarily to cover employee pay increases equivalent with those paid government-wide. Offsetting 

this will be a $5,403,000 decrease in program requirements attributable to anticipated volume 

decreases for the Congressional Record, miscellaneous publications, miscellaneous publishing and 

services, business and committee calendars, and hearings. 

As shown on page E-4 of our budget justification for FY 2017, the unexpended balances of prior 

year appropriations that have been transferred to GPO’s Business Operations Revolving Fund 

will be used to offset anticipated requirements for FY 2016 and FY 2017, so that appropriation 

requirements for those years can remain stable at $79,736,000 each year. Compared to FY 2016, 

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we project there will be a decrease of $3,278,000 in the need for this funding. The balance of 

these funds is earmarked for GPO’s critically important Composition System Replacement (CSR) 

project, involving the development of an XML-based composition system to replace our 30+ yearold Microcomp system used in the preparation of congressional documents for digital and print 

access. 

Public Information Programs of the Superintendent of Documents We are requesting 

$29,500,000 for this account, representing a decrease of $1,000,000 or 3.3% from the amount 

approved for FY 2016 in P.L. 114-113. The requested amount is based on the outcome of using 

zero-based budgeting to determine the proper levels of funding needed to perform program 

activities at minimum levels, as directed by House Report 114-110.

Public Information Programs of the

Superintendent of Documents Appropriation

FY 2010-2016

Fiscal Year Appropriation

 2010 $40,911,000

 2011 $39,831,178

 2012 $35,000,000

 2013 $31,437,000

 2014 $31,500,000

 2015 $31,500,000

 2016 $30,500,000

The funding we are requesting for FY 2017 will cover mandatory pay and related cost increases 

of $389,000. Merit and other pay increases are included for 94 FTE’s, the same as for FY 2016. 

In addition, the requested funding covers projected price level increases of $28,000, including 

ongoing systems maintenance and FDsys operating expenses. 

As with our Congressional Publishing Appropriation, unspent balances of prior year 

appropriations that have been transferred to GPO’s Business Operations Revolving Fund will be 

used to offset anticipated requirements for FY 2016 and FY 2017. These requirements include 

projects to continue transitioning GPO’s Public Information Programs to an increasingly digital 

basis, including the modernization of legacy IT systems, automation of depository distribution, 

the replacement of GPO’s Integrated Library System, bulk harvesting and content management, 

enhanced Web-based applications, and the development of metadata and parsers for the digitized 

Congressional Record and Federal Register. The use of these funds enables GPO to reduce its 

appropriations requirements while continuing to perform essential services and carry out digital 

transformation projects. 

Business Operations Revolving Fund We are requesting $7,832,000 for this account, to 

remain available until expended, for information technology projects and necessary facilities 

projects. This compares with $6,832,000 that was appropriated for FY 2016. Funding provided 

to this account represents an increase to working capital for specified projects. Since FY 2013, 

these projects have consistently included improvements to GPO’s FDsys, which has expanded 

public access to congressional and other Government information products in digital formats 

while decreasing the costs of distributing traditional print formats, as well as other essential 

IT projects. Our request this year includes necessary expenses associated with enhancing the 

cybersecurity of GPO’s IT systems in the wake of successful cyberattacks this past year against the 

Office of Personnel Management. We also fund necessary physical infrastructure projects through 

appropriations to this account.
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Appropriations to the Business Operations Revolving Fund

FY 2010-2016

Fiscal Year Appropriation

 2010 $12,782,000

 2011 $ 1,655,682

 2012 $ 500,000

 2013 $ 3,966,847

 2014 $ 8,064,000

 2015 $ 8,757,000

 2016 $ 6,832,000

Information Technology Projects — $5,875,000

FDsys Projects — $4,175,000

n	 General System and Collection Development ($3,400,000) – Development of new FDsys features to 

support identified needs of key stakeholders, including developing new content collections, increasing 

content in existing collections, enhancing the accessibility of content, and increasing the discoverability 

of information.

n	 NextGen FDsys Public Website ($450,000) — Completion of development and switchover to FDsys 

NextGen to support a responsive user interface, search engine replacement, publication linking, user 

interface improvements, and content curation.

n	 FDsys Infrastructure ($325,000) — Infrastructure for the hardware, storage, and environments to 

manage system performance as FDsys content and usage continues to grow.

Information Technology Cybersecurity Projects - $1,700,000

n Security Enhancements for Advanced Persistent Threat ($1,500,000) – Required for enhanced 

technologies and services to combat, detect, and prevent advanced persistent threats (including 

sophisticated nation-state actors) from compromising GPO IT systems. 

n Wireless Intrusion Prevention ($100,000) – Required to provide enhanced ability to prevent and 

detect intrusion attempts specifically targeted at wireless systems at GPO.

n Log Collector (Tech Refresh) ($100,000) – Required to replace old and near obsolete log collector 

systems in order to have sufficient audit trail logs for security investigations and detection/prevention of 

intrusion attempts. 

Facilities Infrastructure Projects - $1,957,000

n	 Elevator Repairs ($1,000,000) – Elevators 39, 40, and 41 comprise the main artery for Plant 

Operations to move congressional products between Press and Bindery operations. They also support 

employee life/safety by providing a means for evacuation of medical emergencies. 

n	 Emergency Power Generator ($500,000) – The power blackout by PEPCO in the summer of 2015 

exposed the need for an upgrade to GPO’s emergency generators to support expanded lighting and 

other electrical requirements. 

n	 Uninterrupted Power Supply for Data Center ($257,000) – The current UPS design and equipment 

are both obsolete. To ensure uptime and equipment integrity in GPO’s data center these systems need to 

be replaced. 

n	 Upgrade Electrical Panels/Wiring ($200,000) – This will address the obsolete and often deteriorating 

condition of the central power distribution feeds that are original to the GPO building complex (the 

newest building of which dates to 1940). The outdated wiring represents a safety hazard.
DIRECTOR

Davita E. Vance-Cooks

Executive Level II

DEPUTY DIRECTOR

Jim Bradley

Chief Operating Officer 

Executive Level III

GENERAL COUNSEL

Drew Spalding

SLS

CHIEF ADMINISTRATIVE 

OFFICER

Herbert H. Jackson, Jr.

SLS

SUPERINTENDENT 

OF DOCUMENTS

Mary Alice Baish

SLS

CHIEF OF STAFF

Andrew M. Sherman

SLS

INSPECTOR GENERAL

Michael A. Raponi

SLS

LABOR RELATIONS

Melissa Hatfield

Associate GC – PG 15

HUMAN CAPITAL

Ginger T. Thomas

Chief Human Capital Officer

SLS 

EQUAL EMPLOYMENT 

OPPORTUNITY

Juanita M. Flores

Director – SLS

INFORMATION TECHNOLOGY 

AND SYSTEMS

Charles E. Riddle, Jr.

Chief Information Officer – SLS

SECURITY SERVICES

LaMont R. Vernon

Chief Security Officer – SLS

PLANT OPERATIONS

John W. Crawford

Managing Director – SLS

CUSTOMER SERVICES

Bruce Seger

Managing Director – SLS

LIBRARY SERVICES AND 

CONTENT MANAGEMENT

Laurie Hall

Managing Director – SLS

PROGRAMS, STRATEGY

AND TECHNOLOGY

Richard G. Davis

Chief Technology Officer – SLS

CONGRESSIONAL 

RELATIONS

Andrew M. Sherman

Acting Director – SLS

PUBLIC RELATIONS

Gary Somerset

Media and Public Relations

Manager – PG 14 

OFFICIAL JOURNALS

OF GOVERNMENT

Lyle L. Green

Managing Director – SLS

PUBLICATIONS AND 

INFORMATION SALES SECURITY AND 

INTELLIGENT DOCUMENTS

Stephen G. LeBlanc

Managing Director – SLS

January, 2016

ACQUISITIONS

Herbert H. Jackson, Jr.

Acting Director – SLS

CHIEF FINANCIAL OFFICER

Steven T. Shedd

Chief Financial Officer – SLS

STRATEGY ADMINISTRATION PUBLIC INFORMATION 

PROGRAMS

LEGAL FINANCE

OPERATIONS

G P O O R G A N I Z AT I O N

EMPLOYEE

COMMUNICATIONS

ADMINISTRATIVE SERVICES

Oksana Pozda

Manager – PG 15

B-1
DIRECTOR

• Chief Executive Officer

DEPUTY DIRECTOR

• Chief Operating Officer• Oversees day-to-day operations

GENERAL COUNSEL

• Represents GPO in all legal  matters and administrative forums

CHIEF ADMINISTRATIVE 

OFFICER

• Long-range administrative and logistical planning• Oversight of administrative  offices

SUPERINTENDENT 

OF DOCUMENTS

• Oversight of information  dissemination

CHIEF OF STAFF

• Long range strategic planning• Oversight of staff offices

INSPECTOR GENERAL

• Audits and investigations• Recommendations to promote  efficiency and effectiveness

LABOR RELATIONS

• Labor contract negotiation and  management HUMAN CAPITAL

• Personnel operations and  management• Workforce development,  education and training• Health programs

EQUAL EMPLOYMENT OPPORTUNITY

• Affirmative employment• Special emphasis programs• Counseling and complaints processing

INFORMATION TECHNOLOGY 

AND SYSTEMS

• Information resource management  planning, policies and programs• Legacy and mainframe computer  system operations and  maintenence • Systems security• GPO network operation

PLANT OPERATIONS

• Legislative services to Congress• Services to Executive Agencies• Engineering and environmental  services• Maintenance• Safety

CUSTOMER SERVICES

• Procure related services for all  Federal agencies.• Quality assurance and  procurement compliance• Customer outreach, satisfaction,  and marketing • Prepress design and consultation  services

LIBRARY SERVICES AND 

CONTENT MANAGEMENT

• Public online access to Government information products• Permanent access to Government  information• Cataloging and indexing of  Government publications• Distribution of publications to  Depository Libraries

PROGRAMS, STRATEGY

AND TECHNOLOGY

• Serves as agency-wide resource  to ensure that agency programs

and projects are delivered on time, while meeting stakeholder needs, 

ensuring standard processes are followed, maximizing agency 

 value and minimizing overall 

agency costs.

• Management, ongoing  development, and support of GPO’s Federal Digital System  (FDsys).

CONGRESSIONAL 

RELATIONS

• Liaison with Congress

PUBLIC RELATIONS

• Point of contact for the press  and the public• Media outreach• Speech writing/review• Special event planning• Annual report production

OFFICIAL JOURNALS

OF GOVERNMENT

• Customer services for Congress  and Office of Federal Register• Monitors production and assists  with product and process  innovations• Develops and publishes content for the CRI

PUBLICATION AND 

INFORMATION SALES

• Sales of publications digital and print• Agency storage and distribution  services SECURITY AND 

INTELLIGENT DOCUMENTS

• e-Passports, Smartcards• Security, PKI Certificates

January, 2016

ACQUISITIONS

CHIEF FINANCIAL OFFICER

• Budget• Accounting and financial reporting• Payroll, billing and collection  operations• Financial management

STRATEGY ADMINISTRATION PUBLIC INFORMATION 

PROGRAMS

LEGAL FINANCE

OPERATIONS

G P O F U N C T I O N S B Y O R G A N I Z AT I O N

SECURITY SERVICES

• Law enforcement/security  operations• Physical security and access  control requirements• Manages personnel, informational  and industrial security programs • Antiterrorism/Force Protection  programs

• Safety Programs

EMPLOYEE

COMMUNICATIONS

• Employee communications  through various media

ADMINISTRATIVE SERVICES

• Directive and Records Mgmt.• Mail Management• Transportation/Logistics• Building Lease Management

• Purchasing• Contract administration

B-2
B-3

GPO STAFFING INFORMATION

As of November, 2015

Business Unit 1-8 9-12 13-15 SLS Executive Wage Grade Total

Acquisitions 3 11 4 0 0 0 18

Administrative Services 9 0 4 0 0 0 13

Congressional and Public Relations 0 1 5 0 0 0 6

Customer Services 25 81 37 2 0 0 145

Executive Offices 1 4 5 2 2 0 14

Equal Employment Opportunity 0 3 1 1 0 0 5

Finance and Administration 15 42 47 2 0 2 108

General Counsel 1 2 8 2 0 0 13

Human Capital 9 13 15 1 0 1 39

Information Technology 3 22 67 2 0 0 94

Inspector General 0 3 14 1 0 0 18

Library Services and Content Management 3 39 26 2 0 9 79

Official Journals Of Government 3 13 14 1 0 54 85

Plant Operations 21 51 51 2 0 642 767

Programs, Strategy, and Technology 0 1 17 1 0 0 19

Publication and Information Sales 34 18 7 0 0 9 68

Security Services 41 12 7 1 0 0 61

Security and Intelligent Documents 8 1 32 1 0 115 157

Grand Total 176 317 361 21 2 832 1,709

Note: This information outlines the number of employees within the agency’s organizational structure. 

The breakout is by plan and grade range or salary equivalent of 1,709 employees, as of November, 2015. 

GPO’s Senior Level Service (SLS) is similar to the Senior Executive Service. 
C-1

GOVERNMENT PUBLISHING OFFICE

Summary of Appropriation Estimates

(Dollars in Thousands)

C-1

Government Publishing Office

Summary of Appropriation Estimates

(Dollars in Thousands)

FY 2015 FY 2016 FY 2017 FY 2016/2017

Appropriation Title Actual Approved Request Net Change

Congressional Publishing $ 79,736 $ 79,736 $ 79,736 $ -

Public Information Programs

 Superintendent of Documents

By Law Distribution 315 305 295 (10)

Cataloging and Indexing 8,505 8,235 7,965 (270)

Federal Depository Library 22,050 21,350 20,650 (700)

International Exchange 630 610 590 (20)

Total Appropriation 31,500 30,500 29,500 (1,000)

Business Operations Revolving

Fund 8,757 6,832 7,832 1,000

Total Appropriations $ 119,993 $ 117,068 $ 117,068 $ -
C-2

GOVERNMENT PUBLISHING OFFICE

Staffing Summary — FTE’s

C-2

Government Publishing Office

Staffing Summary - FTE's

FY 2015 FY 2016 FY 2017 FY 2016/2017

Appropriation Title Actual Approved Request Change

Congressional Publishing - - - -

Public Information Programs

 Superintendent of Documents

By Law Distribution 1 1 1 -

Cataloging and Indexing 21 25 25 -

Federal Depository Library 53 66 66 -

International Exchange 2 2 2 -

 Total Appropriation 77 94 94 -

Business Operations Revolving Fund 1,625 1,740 1,740 -

 Total Agency 1,702 1,834 1,834 -
D-1

Mission Statement

Keeping America Informed as the Official, Digital, 

and Secure source for producing, protecting, 

preserving, and distributing the official publications 

and information products of the Federal 

Government.

Vision

Continue to Transform Ourselves into a Digital 

Information Platform and Provider of Secure 

Credentials.

About GPO

Established in 1861, GPO’s mission can be traced 

to the requirement in Article I of the Constitution 

that Congress “keep a journal of its proceedings and 

from time to time publish the same.” GPO’s inplant 

production and printing procurement operations 

produce the official publications of Congress, 

the White House, and Federal agencies. GPO’s 

information dissemination programs provide public 

access to the official publications and information 

of the Government in both digital and printed 

formats through an official Web site (www. fdsys.

gov), a partnership with Federal depository libraries 

nationwide, and both online and bookstore sales. 

Total GPO employment today is approximately 

1,700.

Congressional printing and information services 

are the primary function of GPO’s inplant facility in 

Washington, D.C. In addition to the Congressional 

Record containing the daily proceedings of 

Congress, GPO produces bills, hearings, reports, 

and other legislative documents, in digital and print 

formats, as required by the Senate and House of 

Representatives and their committees. GPO’s inplant 

facility also produces the daily Federal Register and 

Code of Federal Regulations, and the annual Budget 

of the U.S. Government, as well as U.S. passports 

and other secure Federal credentials. GPO has 

an additional facility in Mississippi for passport 

production.

GPO provides centralized operations for the 

procurement of information products for the entire 

Government, purchasing approximately $300 million 

annually from private sector vendors nationwide 

for Federal agency customers. About 70% of all the 

products ordered annually from GPO (other than 

passports and secure credentials) are procured from 

the private sector, including Social Security cards, 

census and tax forms, and Medicaid and Medicare 

materials. GPO’s procurement program provides 

great economic opportunity for the private sector. 

The majority of the firms GPO deals with are small 

businesses of 20 employees or less.

GPO’s primary information dissemination program 

involves a partnership with approximately1,200 

Federal depository libraries nationwide. Today, the 

partnership is predominantly electronic, but tangible 

formats are distributed where required. GPO’s 

Federal Digital System (FDsys) provides free public 

access to more than 900,000 searchable titles, with 

an average of 47 million retrievals every month. 

GPO also provides for public sale of Government 

publications via its traditional and online bookstores, 

offers eBooks through partnerships with multiple 

vendors, and provides a variety of mobile web apps 

for key Federal documents.

GPO operates on a revolving fund basis, like 

a business. Only 14% of GPO’s funding comes 

from direct appropriations to cover the cost of 

congressional work and the depository library 

program and supporting distribution programs. All 

other revenues to GPO are reimbursements from 

agencies for work performed or sales of publications 

to the public.

For more information, please visit www.gpo.gov.

Follow GPO on Twitter http://twitter.com/USGPO, 

YouTube http://www.youtube.com/user/gpoprinter, 

and Facebook www.facebook.com/usgpo.

Core Values

GPO’s core values define our character. These values 

transcend product and market cycles, management 

trends, technological change, and individual leaders. 

Over the years, GPO has developed new product 

lines, employed new strategies, reengineered 

processes, and significantly restructured the 

organization, yet the core values have remained intact.

Commitment 

GPO has had the responsibility of Keeping America 

Informed for over 150 years. It continues that long 

tradition by providing an uncompromised dedication to 

authentic, fast, and reliable service.

Customer Service 

GPO has a customer-centric approach and has agencywide procedures, policies, and activities in place to 

ensure we are meeting customers’ needs and exceeding 

Strategic Plan Framework
D-2

their expectations.

Dependability 

GPO is a trusted source of Federal information and 

works to deliver quality goods and services on time.

Diversity 

GPO is dedicated to diversity in every aspect of 

the business. Our commitment to diversity helps 

serve customers better and provides a positive work 

environment for employees. GPO is committed to 

promoting and supporting an inclusive environment that 

provides to all employees the chance to work to their 

full potential.

Integrity 

GPO’s employees believe that honesty and the highest 

ethics form the cornerstone of the organization and 

create an environment of trust.

Teamwork

GPO employees treat one another with dignity and 

respect and communicate openly. GPO’s environment 

fosters collaboration and innovation while maintaining 

individual accountability. The agency partners with the 

Government and the private sector to provide the best 

value to customers.

I. Satisfying Our Stakeholders

A. It’s all About the Customer

Objective

Develop internal processes and procedures that 

support an internal organizational culture in which 

exceptional service, delivery, and customer satisfaction 

are encouraged and rewarded.

n GPO will work to understand, anticipate, and 

meet the needs of customers. GPO will provide 

world-class customer service together with 

product innovation through a wide range of print 

and technology vehicles.

n GPO is dedicated to providing products that 

deliver results and will recognize employees who 

exceed customer expectations.

n GPO will continue to utilize our expertise in 

printing and information technologies to educate 

our customers so that they can take advantage of 

GPO products and services.

B. Open and Transparent 

Objective 

Build on GPO’s ongoing commitment to an open and 

transparent government.

n GPO will continue to provide authentic 

information to the American public through a 

variety of print and technology vehicles efficiently 

and securely.

n GPO will become a key innovator and leader in 

the Presidential mandate of transparency (White 

House Open Government Initiative). Realizing 

that participation, and collaboration form the 

cornerstone of an open government, GPO will 

utilize all available technology to assist Federal 

agencies in disseminating information about 

their operations in a fast, secure, and permanent 

manner.

C. Enhance Strategic Partnerships

Objective

Enhance strategic partnerships to gain flexibility, build 

effective networks, and manage processes to meet 

customer demands and expectations.

n GPO will develop the agency-wide synergies 

and flexibilities to continuously strive for quality, 

availability, and efficiency in the delivery of 

products and services. GPO will also work 

to improve its internal culture and business 

processes to ensure mutual support and growth 

to customers and employees.

n GPO will continuously work on strengthening 

purposeful collaboration with internal and 

external customers that will create more efficient 

and effective programs and processes.

II. Strengthening Our 

 Organizational Foundation

A. Right Tools

Objective 

Anticipate, plan and equip GPO to provide products and 

services to customers.

n In order to provide quality service to customers, 

GPO must invest in employees and technology. 

GPO will focus on the creation of first-rate, 

system-wide solutions that meet customer 

requirements and exceed customer expectations. 

GPO will improve processes and technologies 

to ensure that solutions are scalable, available, 

cost-effective, and secure.

n Technology investments will be in direct 

relationship with GPO’s business goals, resulting 

in excellent customer service, strong partnerships, 

secure infrastructures, and cost-effective 

performance.
B. Maintain Fiscal Responsibility

Objective 

Utilize a cost effective and collaborative approach 

in managing GPO’s business processes to help the 

agency achieve its strategic initiatives and ensure 

continued financial stability.

C. Environmental Stewardship

Objective

Continue to integrate the application of environmental 

values into GPO processes and support environmental 

stewardship through effective implementation of “green 

initiatives.”

n GPO is committed to working toward a more 

sustainable future and providing a safer, healthier 

environment to future generations. GPO will 

continue to introduce programs that include 

recycling, reducing energy consumption, and 

reducing GPO’s carbon footprint and will provide 

Federal customers with environmentally friendly 

printing alternatives.

n GPO will remain committed to creating a 

sustainable environment that prioritizes agency 

actions based on return on investment. GPO 

will continue with initiatives regarding paper 

consumption, petroleum products utilization, 

energy expenditures, emissions, and other 

areas that have reduced its footprint on the 

environment. GPO is developing additional plans 

to incorporate this direction well into the future.

D. Continuity of Operations (COOP)

Objective 

Develop appropriate plans to provide for the continuation of 

GPO’s essential functions and operations during a wide range 

of all-hazards emergencies.

n At GPO, COOP enables continuation of essential 

functions of printing and information product 

operations for Congress, Federal agencies, and 

the public in the event of a national security or 

isolated emergency affecting GPO facilities in 

Washington, D.C.

III. Offering Products and Services

A. Statutory Foundation

Objective

The mission of the GPO is rooted in legislation codified 

in Title 44 U.S.C. We will continue to use technology and 

best practices to ensure the most efficient and effective 

provision of mission-critical products and services for 

Congress, Federal agencies, and the public.

B. Secure Federal Credentials

Objective

Provide the capability to meet the secure Federal 

credential requirements of Federal agencies.

n GPO plays a vital role in the security programs 

of our customers and our Nation. GPO produces 

the latest-generation electronic passports for the 

Department of State (DOS). Proven passport 

capabilities are built into a family of secure 

credential products for our agency customers. 

They acquire secure credential design, printing, 

manufacturing, personalization, and delivery—all 

from GPO. Work is performed in Government 

facilities by Government employees with proper 

clearances.

IV. Engaging Our Workforce

A. Employer of Choice

Objective

Transform GPO into an employer of choice through 

proactive workforce planning that focuses on diversity 

and through fostering work life programs to meet the 

changing needs of today’s and tomorrow’s employees.

n GPO’s ability to be viewed as an employer 

of choice depends on the agency’s ability to 

develop and attract quality employees and to 

motivate them to perform at high levels. GPO 

will work to maintain an environment that is 

fair, unbiased, and family-friendly, that promotes 

and values opportunity and inclusiveness. This 

includes a focus on reducing the incidents of EEO 

complaints.

n Attracting and keeping high-caliber employees 

and cultivating a talented, diverse workforce will 

allow GPO to tackle the challenges posed by 

an increasingly complex, ever-changing external 

environment. GPO is committed to treating all 

employees fairly, respecting their diversity, and 

valuing their contributions. 

D-3
E-1

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING

Including Transfer of Funds

Fiscal Year 2017

Proposed Appropriations Language:

For authorized publishing of congressional information and the distribution of congressional 

information in any format; expenses necessary for preparing the semi-monthly and session 

index to the Congressional Record, as authorized by law (section 902 of title 44, United States 

Code); publishing of Government publications authorized by law to be distributed to Members 

of Congress; and publishing, and distribution of Government publications authorized by law to 

be distributed without charge to the recipient, $79,736,000: Provided, That this appropriation 

shall not be available for paper copies of the permanent edition of the Congressional Record 

for individual Representatives, Resident Commissioners or Delegates authorized under section 

906 of title 44, United States Code: Provided further, That this appropriation shall be available 

for the payment of obligations incurred under the appropriations for similar purposes for 

preceding fiscal years: Provided further, That notwithstanding the 2-year limitation under 

section 718 of title 44, United States Code, none of the funds appropriated or made available 

under this Act or any other Act for printing and binding and related services provided 

to Congress under chapter 7 of title 44, United States Code, may be expended to print a 

document, report, or publication after the 27-month period beginning on the date that such 

document, report, or publication is authorized by Congress to be printed, unless Congress 

reauthorizes such printing in accordance with section 718 of title 44, United States Code: 

Provided further, That any unobligated or unexpended balances in this account or accounts for 

similar purposes for preceding fiscal years may be transferred to the Government Publishing 

Office Business Operations Revolving Fund for carrying out the purposes of this heading, 

subject to the approval of the Committees on Appropriations of the House of Representatives 

and Senate: Provided further, That notwithstanding sections 901, 902, and 906 of title 44, United 

States Code, this appropriation may be used to prepare indexes to the Congressional Record on 

only a monthly and session basis. (Legislative Branch Appropriations Act, 2016.)

Base Budget Review:

Description of Program

The estimates for Congressional Publishing are to provide funds to pay for the cost 

of publishing required for the use of Congress, and for publishing and distribution of 

Government publications authorized by law to be distributed without charge to the recipient.

Explanations of Changes

The appropriation requested for FY 2017 is $79,736,000. A total of $81,113,000 is required to 

cover congressional publishing requirements for FY 2017, but transfers of unexpended prior 

year appropriations to the Government Publishing Office Business Operations Revolving 

Fund of $1,377,000 will be utilized to offset part of these requirements. For FY 2016, a total 

of $84,391,000 is estimated to be required to cover congressional publishing requirements, 

but transfers of unexpended prior year appropriations totaling $4,655,000 are available, in 

addition to the appropriation of $79,736,000. 

A. Congressional Record Program. The proceedings of the Senate and House of 

Representatives are published in the Congressional Record and posted in digital format on 

GPO’s Federal Digital System (FDsys). Approximately 2,208 copies are printed daily. About 

1,700 copies are charged to the Congressional Publishing Appropriation, including about 

640 copies distributed without charge to recipients designated by Senators. The copies that 

are not charged to the Congressional Publishing Appropriation are delivered and charged 

to Government departments on requisitions and to the Superintendent of Documents for 
E-2

sale to subscribers. Online access to a digital Congressional Record database was initiated 

in 1994 pursuant to the authorization in Chapter 41 of Title 44, U.S.C. After the close of 

each session, the daily proceedings are consolidated, indexed, and posted on FDsys. About 

233 sets are printed as the permanent bound edition of the Record. About 102 of these 

sets are for Congressional use and charged to the Congressional Publishing Appropriation. 

The remaining 131 sets are for public sale, charged to departments on requisition, or 

distributed to regional Federal depository libraries. An estimated 20,400 pages will be 

required in FY 2017 and the cost will be approximately $22,482,000.

B. Miscellaneous Publications. This item includes publications such as the Congressional 

Directory, Senate and House Journals, memorial addresses of Members, serial sets, and 

publications not carrying a document or report number, such as laws, treaties, and similar 

publications. An estimated $3,683,000 will be required in FY 2017 for approximately 

14,900 pages.

C. Miscellaneous Publishing and Services. This item includes letterheads, envelopes, 

blank paper, miscellaneous services, blank forms, composition and content management, 

binding, and archival storage for both Houses of Congress. The estimate for FY 2017 is 

$18,108,000 for about 52.9 million units.

D. Details to Congress. This item includes the cost for GPO employees detailed to 

Congress. The estimated cost for FY 2017 is $4,557,000 for 73,500 hours. 

E. Document Envelopes and Document Franks. Document envelopes are furnished to 

Senators and Representatives for the mailing of speeches and documents. Document franks 

are printed individually or in sheets with perforations and are furnished to Members of 

Congress for mailing documents. An estimated $648,000 will be needed in FY 2017 for 

approximately 3.9 million envelopes, at a cost of $583,000 and .5 million document franks 

at a cost of $65,000. 

F. Business and Committee Calendars. This heading covers the publishing of all 

House and Senate business and committee calendars, which list the actions on pending 

and completed legislation. An estimated $2,625,000 will be required in FY 2017 for 

approximately 19,600 pages.

G. Bills, Resolutions, and Amendments. This heading covers the publishing of bills, 

resolutions, and amendments in all forms, including the prints as introduced, referred, 

reported, and finally passed. The estimate for FY 2017 is $4,590,000 for approximately 

124,300 pages.

H. Committee Reports. This item covers published reports of congressional committees 

on pending legislation that carry a congressional number. An estimated $2,775,000 will be 

needed for about 37,600 pages in FY 2017.

I. Documents. This heading includes all classes of Senate and House documents ordered 

published by Congress that carry a congressional number, such as annual reports, 

engineers’ reports, special reports made by Government departments in response to 

resolutions, supplemental and deficiency estimates of appropriations, etc. The estimate for 

FY 2017 is $1,922,000 for about 36,500 pages.

J. Hearings. This item covers all hearings before House and Senate committees. The 

estimate for FY 2017 is $18,547,000 for approximately 250,900 pages.

K. Committee Prints. This item includes publications for the internal use of committees on 

pending legislation. The estimate for FY 2017 is $1,176,000 for 28,900 pages.
E-3

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Base Budget Review (Detail by Activity)

(in thousands of dollars)

E-4

CONGRESSIONAL PUBLISHING APPROPRIATION

Base Budget Review (Detail by Activity)

(Dollars in Thousands)

 Category 2015 2016 2017

Actual 1 Estimate Estimate Change

A. Congressional Record Publications:

 Daily Record:

 Content Development 2.............................................$ 12,135 $ 13,092 $ 12,695 $ -397

 Printing................................................................... 5,976 6,448 6,253 -195

 Subtotal................................................................. 18,111 19,540 18,948 -592

 Record Index........................................................... 2,021 2,231 1,982 -249

 Record Indexers...................................................... 1,595 1,503 1,552 49

 Subtotal................................................................. 21,727 23,274 22,482 -792

B. Miscellaneous Publications..................................... 3,520 3,707 3,683 -24

C. Miscellaneous Publishing and Services.................... 15,951 18,454 18,108 -346

D. Details to Congress................................................... 4,353 4,410 4,557 147

E. Document Envelopes and Franks............................. 577 631 648 17

F. Business and Committee Calendars.......................... 2,189 3,978 2,625 -1,353

G. Bills, Resolutions, and Amendments.......................... 4,772 4,410 4,590 180

H. Committee Reports.................................................... 2,406 2,768 2,775 7

I. Documents................................................................. 1,621 1,872 1,922 50

J. Hearings..................................................................... 18,947 19,764 18,547 -1,217

K. Committee Prints........................................................ 1,288 1,123 1,176 53

 Total Obligations...................................................... 77,351 84,391 81,113 -3,278

 Surplus/(Shortfall).................................................... 2,385 -4,655 -1,377 3,278

 Appropriation............................................................ $ 79,736 $ 79,736 $ 79,736 $ 0

1 Comprised of actual year-to-date expenditures and estimated unliquidated obligations.

2 Includes GPO FDsys publishing.

Note: The unexpended balances of prior year appropriations that have been transferred to GPO's Business 

Operations Revolving Fund will be used to offset anticipated requirements for FY 2016 and FY 2017, so that 

appropriation requirements for those years can remain stable at $79,736,000 each year. The balance of these 

funds is earmarked for GPO's critically important Composition System Replacement (CSR) project, involving the 

development of an XML-based composition system to replace GPO's 30+ year-old Microcomp system used in the 

preparation of congressional documents for digital and print access.

GOVERNMENT PUBLISHING OFFICE
E-4

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Analysis Of Change FY 2016 to FY 2017

FTE AMOUNT

(000)

 Base, 2016 - $79,736

 I. Adjustments To Base

 A. Price Level Changes - 2,125

 1. Daily Congressional Record:

 1a. Content Development - 330

 1b. Printing - 163

 Subtotal - 493

 2. Congressional Record Index - 52

 3. Congressional Record Indexers - 49

 4. Miscellaneous Publications - 96

 5. Miscellaneous Publishing and Services - 449

 6. Details to Congress - 147

 7. Document Envelopes and Franks - 17

 8. Business and Committee Calendars - 68

 9. Bills, Resolutions, and Amendments - 119

 10. Committee Reports - 72

 11. Documents - 50

 12. Hearings - 482

 13. Committee Prints - 31

2017 REQUEST

CALCULATION OF BASE

CONGRESSIONAL PUBLISHING APPROPRIATION

Analysis Of Change FY 2016 to FY 2017
E-5

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Analysis Of Change FY 2016 to FY 2017

E-6

FTE AMOUNT

(000)

 B. Program Type Changes - ($2,125)

 1. Activity - -5,403

 a. Daily Congressional Record:

 1. Content Development - -728

 2. Printing - -358

 Subtotal - -1,086

 3. Congressional Record Index - -300

 b. Miscellaneous Publications - -120

 c. Miscellaneous Publishing and Services - -795

 d. Business and Committee Calendars - -1,422

 e. Bills, Resolutions, and Amendments - 60

 f. Committee Reports - -65

 g. Hearings - -1,699

 h. Committee Prints - 24

 2. Estimated Change - in Surplus/(Shortfall) - 3,278

 II. Net Change - 0

III. Appropriation 2017 - $79,736

 CALCULATION OF BASE

CONGRESSIONAL PUBLISHING APPROPRIATION

Analysis Of Change FY 2016 to FY 2017
E-6

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Explanation of Changes

E-7

FTE Amount

(000)

A. PRICE LEVEL CHANGES

 The average 2.5 percent increase is due to 

 increases in publishing costs. - $2,125

B. PROGRAM TYPE CHANGES 

1. Activity (Volume) - -5,403

 a. Congressional Record Publications:

 1. Daily Record

 This 5.6 percent decrease is computed - -1,086

 based on historical data.

 2. Congressional Record Index

 This 13.5 percent decrease is computed - -300

 based on historical data.

 b. Miscellaneous Publications

 This 3.2 percent decrease is computed - -120

 based on historical data.

 c. Miscellaneous Publishing and Services

 This 4.3 percent decrease is computed - -795

 based on historical data.

 d. Business and Committee Calendars

 This 35.7 percent decrease is computed based on - -1,422

 historical data.

 e. Bills, Resolutions, and Amendments

 This 1.4 percent increase is computed based on - 60

 historical data.

 f. Committee Reports

 This 2.3 percent decrease is computed based on - -65

 historical data.

 g. Hearings

 This 8.6 percent decrease is computed based on - -1,699

 historical data.

 h. Committee Prints

 This 2.1 percent increase is computed based on

 historical data. - 24

2. Estimated Change - $3,278

CONGRESSIONAL PUBLISHING APPROPRIATION

Explanation of Changes
E-7

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

By Object Class

(In thousands)

2015 2016 2017

OMB Object Class Actual Actual Estimate Change 

24 Printing & Reproduction $79,736 $79,736 $79,736 $0

 

OMB Object Class Price Level Changes Program Type Changes Total Changes

24 Printing & Reproduction $2,125 ($2,125) $0

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Analysis of Change to Budget Base

(In thousands)
E-8

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Estimated Cost Per Unit by Category1

E-9

 Category Unit 22015 2016 2017

A. Congressional Record Program:

 Daily Record:

 Content Development................................ Page................. $595 $606 $622

 Printing....................................................... Page................. 293 299 307

 Subtotal.................................................... Page................. 888 905 929

 Record Index................................................ Page................. 421 429 440

 Record Indexers........................................... Hours................ 78 80 83

B. Miscellaneous Publications.......................... Page................. 236 241 247

C. Miscellaneous Publishing and Services ...... 1,000 items....... 312 318 327

D. Details to Congress...................................... Hours................ 59 60 62

E. Document Envelopes and Franks................ 1,000 items....... 141 143 147

F. Business and Committee Calendars............. Page................. 128 130 134

G. Bills, Resolutions, and Amendments............ Page................. 35 36 37

H. Committee Reports...................................... Page................. 71 72 74

I. Documents.................................................... Page................. 50 51 53

J. Hearings....................................................... Page................. 76 72 74

K. Committee Prints.......................................... Page................. 39 40 41

Estimated Cost Per Unit by Category1

CONGRESSIONAL PUBLISHING APPROPRIATION

1

 Unit costs are established based on projected workload volumes and costs. Unit costs may require 

adjustment if actual workload demands differ substantially from projections. GPO does not control actual 

workload volumes, which are driven by customer requirements. Therefore, volume variances may result in 

actual unit costs that differ from these estimates, due to fixed costs which do not vary directly in proportion to 

workload.

2 The unit cost per page is the number of original pages, and the cost includes all Congressional copies of 

each category of work. The per page cost for content development for the Daily Congressional Record 

includes all composition (including file up-date and maintenance for the permanent edition) and prepress costs 

per original page. The cost for printing includes binding and mailing all of the copies charged to Congress. 

Based on an average press run of 2,208 copies, the total production cost is 24.5 cents per copy page, 

including copies ordered by agencies, depository libraries, and for sale to the public. The rider rate for printing 

additional copies is 1.5 cents per copy page.
E-9

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL PUBLISHING APPROPRIATION

Volume1 Increase/(Decrease)

E

10

2015 2016 2017

Category Unit Total Quantity Percent Total Quantity Percent Total

A. Congressional Record Program: Daily Record: Content Development....................................... Page................. 20,400 1,200 5.9 21,600 -1,200 (5.6) 20,400 Printing.............................................................. Page................. 20,400 1,200 5.9 21,600 -1,200 (5.6) 20,400 Record Index...................................................... Page................. 4,800 400 8.3 5,200 -700 (13.5) 4,500 Record Indexers................................................. Hours................ 20,400 -1,600 (7.8) 18,800 0 0.0 18,800B. Miscellaneous Publications................................. Page................. 14,900 500 3.4 15,400 -500 (3.2) 14,900C. Miscellaneous Publishing and Services ............. 1,000 items....... 51,100 4,300 8.4 55,400 -2,500 (4.5) 52,900D. Details to Congress............................................. Hours................ 73,500 0 0.0 73,500 0 0.0 73,500E. Document Envelopes and Franks....................... 1,000 items....... 4,100 300 7.3 4,400 0 0.0 4,400F. Calendars............................................................. Page................. 17,100 13,400 78.4 30,500 -10,900 (35.7) 19,600G. Bills, Resolutions, and Amendments................... Page................. 135,200 -12,600 (9.3) 122,600 1,700 1.4 124,300H. Committee Reports............................................. Page................. 34,100 4,400 12.9 38,500 -900 (2.3) 37,600I. Documents.......................................................... Page................. 32,200 4,300 13.4 36,500 0 0.0 36,500J. Hearings.............................................................. Page................. 249,800 24,700 9.9 274,500 -23,600 (8.6) 250,900K. Committee Prints................................................. Page................. 33,100 -4,800 (14.5) 28,300 600 2.1 28,9001 Volume is an estimate of anticipated requirements.

Increase/(Decrease) Increase/(Decrease)

CONGRESSIONAL PUBLISHING APPROPRIATION

Volume1 Increase (Decrease)
E10

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL BILLINGS FOR COMMITTEES BY CATEGORY

During FY 2015 CONGRESSIONAL BILLINGS FOR COMMITTEES BY CATEGORY During FY 2015

House Daily Record Record Misc. Misc. Doc. Doc. Committee

Committees Cong. Rec. Index Indexers Pubs. P&S Details Env. Franks Calendars Bills Reports Documents Hearings Prints TOTALS

U.S. House of Representatives 9,289,310 1,156,809 60,874 1,629,971 96,347 29,929 1,234,600 13,497,840

Clerk of the House 830 416,109 1,719,270 109,781 10,705 2,608 1,223,033 19,313 311 3,501,961

House Members 97 3,955 510,842 44,880 559,774

H. Agriculture 80,464 103,368 167,300 15,158 366,290

H. Appropriations 950 35,586 5,413,050 575,103 6,024,690H. Armed Services 10,754 100,772 363,927 49,777 525,230H. Financial Services 499,480 16,972 516,452H. Education and the Workforce 10,958 72,806 103,520 884 188,168

H. Foreign Affairs 45 9,662 696,473 706,180

H. Oversight & Government Reform 16,417 106,506 500,625 623,548H. House Administration 28,258 53,753 39,473 121,483H. Natural Resources 7,116 112,100 263,545 6,576 389,336

H. Energy & Commerce 90,111 199,538 913,548 28,930 1,232,127

H. Judiciary 81,647 674,673 18,307 774,627

H. Transportation & Infrastructure 33,010 110,389 381,483 411 525,292

H. Rules 4,659 61,970 66,629

H. Science, Space & Technology 489,510 365 489,875H. Veterans' Affairs 13,288 107,616 210,208 331,112

H. Ways and Means 319 14,171 30,862 45,352

H. Small Business 2,146 121,304 94,287 217,737

H. Commission on Security & Cooperation in Europe 2,312 65,785 176,281 244,378

H. Ethics 36,070 13,734 49,805

H. Office of the Chief Administrative Officer 834 81,540 407 180,479 13,851 277,112

H.Commission on Congressional Mailing Standards 7,166 7,166

H. Budget 3,658 1,584 5,242

H. Legislative Counsel 431,821 431,821

H. Homeland Security 5,790 109,740 181,958 10,011 307,499

H. Permanent Select Committee on Intelligence 3,132 3,132

H. US-China Economic and Security Review Commission 8,447 26,226 134,579 169,252

H. Select Committee On Benghazi 1,165 18,976 20,141 Total House 9,290,140 1,156,809 0 552,003 3,961,661 1,847,873 551,476 47,895 1,223,033 1,234,600 153,892 180,790 11,188,317 830,761 32,219,252
E-11

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL BILLINGS FOR COMMITTEES BY CATEGORY

During FY 2015 CONGRESSIONAL BILLINGS FOR COMMITTEES BY CATEGORY

During FY 2015

Senate Daily Record Record Misc. Misc. Doc. Doc. Committee

Committees Cong. Rec. Index Indexers Pubs. P&S Details Env. Franks Calendars Bills Reports Documents Hearings Prints TOTALS

U. S. Senate 6,805,447 1,027,587 105,990 1,013,635 1,340 892,512 242,415 48,744 3,119 10,140,790Secretary of the Senate 121,950 1,628,456 470,002 7,728 10,626 2,701 16,464 2,257,927

Senate Members 79,943 2,248,067 1,075 2,329,085

S. Sec - Sergeant at Arms 816,081 816,081S. Agriculture, Nutrition & Forestry 3,319 115,640 220,196 339,155

S. Appropriations 35 27,262 381,053 197,468 46,926 652,744

S. Armed Services 16,072 1,180 480,362 13,652 511,265

S. Banking, Housing & Urban Affairs 7,094 206,441 567,782 1,237 782,554

S. Commerce, Science & Transportation 5,485 109,327 364,590 479,402

S. Finance 213 14,298 197,355 308,871 27,618 548,355

S. Foreign Relations 5,742 186,204 234,430 149,274 575,650

S. Homeland Security & Governmental Affairs 17,244 103,486 1,284,787 81,878 1,487,395S. Energy & Natural Resources 25,670 92,630 167,183 21,592 307,075

S. Judiciary 12,942 88,795 518,885 620,622

S. Health, Education, Labor & Pensions 14,252 108,029 154,230 2,814 279,325

S. Environment & Public Works 6,595 208,445 757,398 160 972,598

S. Rules & Administration 5,323 6,002 64,425 11,948 87,699

S. Democratic Policy 18,013 196,794 214,807S. Republican Policy 2,047 2,047

S. Small Business & Entrepreneurship 9,842 113,133 122,975

S. Special Committee on Aging 4,945 11,773 16,718

S. Select Committee on Ethics 9,015 4,792 5,623 19,431

S. Veterans' Affairs 5,669 101,185 75,975 5,020 187,850

S. Legislative Counsel 53,292 338,017 391,309

S. Sergeant at Arms 130,855 630,621 2,843 764,319

S. Budget 12,896 88,500 81,231 41,810 224,437

S. Legal Counsel 10,338 190 3,543 14,071

S. Select Committee on Intelligence 5,430 4,987 3,006 13,423

S. Indian Affairs 12,332 107,498 126,070 245,900

 Total Senate 6,805,447 1,027,587 0 453,325 6,638,435 2,903,787 0 13,176 892,512 242,415 59,370 70,245 5,669,351 629,358 25,405,008
E-12

GOVERNMENT PUBLISHING OFFICE

CONGRESSIONAL BILLINGS FOR COMMITTEES BY CATEGORY

During FY 2015 CONGRESSIONAL BILLINGS FOR COMMITTEES BY CATEGORY

During FY 2015

Joint Daily Record Record Misc. Misc. Doc. Doc. Committee

Committees Cong. Rec. Index Indexers Pubs. P&S Details Env. Franks Calendars Bills Reports Documents Hearings Prints TOTALS

Joint Committee On Printing 73,772 4,144 77,916

Joint Economic Committee 567 1,824 28,316 30,707

Joint Committee on Taxation 213 11,371 303 95,225 107,111

Joint Committee on Inaugural Ceremonies 201,540 201,540

 Total Joint Committees 0 0 0 74,552 218,879 0 0 303 0 0 0 0 28,316 95,225 417,274

Miscellaneous

Bylaw 1,649,885 41,461 1,456,372 1,294,527 5,602,392 104,843 3,504,975 2,394,744 1,665,292 33 17,714,525Architect of the Capitol 25 23,530 23,555

Cong-Exec Commission on China 4,467 32,509 13,720 21,963 72,660

Senate Caucus On International Narcotics Control 4,369 4,369

 Total Miscellaneous 1,649,885 41,461 1,456,372 1,294,552 5,634,759 137,352 0 0 0 3,504,975 2,394,744 1,665,292 13,720 21,997 17,815,109

 TOTALS 17,745,473 2,225,857 1,456,372 2,374,433 16,453,733 4,889,012 551,476 61,374 2,115,545 4,981,991 2,608,006 1,916,327 16,899,704 1,577,340 75,856,643
E-13

DETAILS TO CONGRESS AS OF SEPTEMBER 30, 2014 AND 2015

E-14

2014 2015

SENATE COMMITTEES

Agriculture, Nutrition & Forestry............................................................. 1 1

Appropriations.................................................................................... 3 3

Armed Services............................................................................................ 0 1

Banking, Housing & Urban Affairs............................................................ 2 2

Budget.............................................................................................. 1 1

Commerce, Science & Transportation...................................................... 1 1

Energy and Natural Resources.............................................................. 2 0

Environment & Public Works.................................................................. 2 2

Finance............................................................................................. 2 2

Foreign Relations................................................................................ 2 2

Health, Education, Labor & Pensions........................................................ 1 1

Homeland Security & Governmental Affairs.............................................. 1 1

Indian Affairs...................................................................................... 1 1

Judiciary........................................................................................... 1 1

Veterans' Affairs ............................................................................... 1 1

Total Senate Committees..................................................................... 21 20

HOUSE COMMITTEES

Agriculture.................................................................................................... 1 1

Armed Services............................................................................................ 1 1

Education and the Workforce....................................................................... 1 1

Energy & Commerce.................................................................................... 2 2

Homeland Security....................................................................................... 1 1

Natural Resources....................................................................................... 2 1

Oversight & Government Reform.............................................................. 1 1

Small Business............................................................................................. 1 1

Transportation & Infrastructure..................................................................... 1 1

Veterans' Affairs........................................................................................... 1 1

Total House Committees.......................................................................... 12 11

MISCELLANEOUS

Commission on Security & Cooperation in Europe..................................... 1 1

Congressional Service Center (CRS)...................................................... 1 1

House Enrolling Clerk.................................................................................. 1 1

House Legislative Counsel................................................................... 4 4

House Parliamentarian................................................................................. 1 1

Senate Docutech Room............................................................................... 1 1

Senate Enrolling Clerk................................................................................. 1 1

Senate Legislative Counsel................................................................... 3 3

Senate Official Reporters............................................................................. 1 1

Senate Service Department.................................................................. 1 1

Total Miscellaneous................................................................................ 15 15

SUMMARY

Senate Committees............................................................................ 21 20

House Committees............................................................................. 12 11

Miscellaneous.................................................................................... 15 15

48 46

DETAILS TO CONGRESS AS OF SEPTEMBER 30, 2014 & 2015
F-1

GOVERNMENT PUBLISHING OFFICE

PUBLIC INFORMATION PROGRAMS OF THE SUPERINTENDENT OF DOCUMENTS

SALARIES AND EXPENSES

Including Transfer of Funds

Fiscal Year 2017

Proposed Appropriation Language:

For expenses of the public information programs of the Superintendent of Documents 

necessary to provide for the cataloging and indexing of Government publications and 

their distribution to the public, Members of Congress, other Government agencies, and 

designated depository and international exchange libraries as authorized by law, [$30,500,000] 

$29,500,000: Provided, That amounts of not more than $2,000,000 from current year 

appropriations are authorized for producing and disseminating Congressional serial sets and 

other related publications for fiscal years [2014 and] 2015 and 2016 to depository and other 

designated libraries: Provided further, That any unobligated or unexpended balances in this 

account or accounts for similar purposes for preceding fiscal years may be transferred to 

the Government Publishing Office Business Operations Revolving Fund for carrying out the 

purposes of this heading, subject to the approval of the Committees on Appropriations of the 

House of Representatives and Senate. (Legislative Branch Appropriations Act, 2016)

Base Budget Review:

Description of Public Information Programs of the Office of Superintendent of Documents 

that are administered through the Library Systems and Content Management (LSCM) 

organization: The Salaries and Expenses Appropriation provides for: (1) the Federal 

Depository Library Program (FDLP); (2) the cataloging and indexing of Government 

publications; (3) the distribution of certain Government publications to Members of 

Congress and other Government agencies, as designated by law; and (4) the distribution of 

Government publications in the International Exchange Service. 

A total of $29,500,000 is requested for this appropriation for FY 2017. The request for FY 

2017 includes funding for 94 full-time equivalents (FTE’s). The request reflects a decrease of 

$1,000,000 from FY 2016. The decrease is the result of on-going cataloging and digitization 

activities being funded through the use of transfer funds from prior year appropriations. The 

agency received approval in FY 2015 to transfer $6,067,000 from prior year appropriations 

for various program activities. The use of these funds has enabled the agency to absorb 

personnel and operational cost increases for FY 2017 while continuing to perform vital 

services. 

Federal Depository Library Program

As authorized by chapter 19 of Title 44, U.S.C., the mission of the FDLP is to disseminate 

information products from all three branches of the Federal Government to 1,159 libraries 

nationwide designated as Federal depository libraries, directly by law or as depositories 

designated by their Representatives and Senators. Federal depository libraries maintain and 

provide free access to Federal Government information products to the public. Providing free 

online access to Government publications is established under the authority of chapter 41 of 

Title 44, U.S.C., via GPO’s Federal Digital System (FDsys) (www.fdsys.gov). 

In FY 2015, approximately 5,920 tangible titles consisting of 1,072,919 copies were distributed 

to Federal depository libraries. In keeping with the direction of the Legislative Appropriations 

Act for FY 1996, GPO has transitioned the FDLP to a predominantly digital electronic 

program. The total number of Federal Government information titles available to the public 

online via FDsys is over one million searchable documents. GPO continues to adjust its 

workflows and operations to accommodate a primarily digital FDLP. The costs of the program 

are related to identifying, acquiring, cataloging, linking to, authenticating, modernizing, and 
F-2

providing permanent public access to digital Government information. Included in these 

costs are on-going maintenance and update expenses for needed digital resources. 

As information becomes more digital and collection space more limited, there have been 

requests from regional depository libraries to be able to discard some materials in order to 

appropriately manage collections. In August of 2015, the Joint Committee on Printing (JCP) 

approved the implementation of a discard policy that the Superintendent of Document must 

define and deploy. In order to successfully implement the new policy, system changes will 

be necessary to establish a new workflow and inventory database. The initial requirements 

are expected to cost approximately $800,000. The Superintendent of Documents plans on 

using prior year appropriations transfer funds for these expenses. This would require no 

new funds to be requested for the initial part of the project in FY 2017.

Cataloging and Indexing Program

Under the requirements of sections 1710 and 1711 of Title 44, U.S.C., GPO is charged with 

creating access to all Federal Government publications that are not confidential in nature 

via catalogs and indexes. The principal tool to do that is the Web-based Catalog of U.S. 

Government Publications (CGP) (http://catalog.gpo.gov) that has over 824,000 records 

identifying and providing access to tangible and digital Federal Government publications. 

In FY 2015, there were 23,640,306 successful searches of the CGP and 19,074 new 

records added to the catalog. GPO’s goals for the CGP are to expand this catalog to be a 

comprehensive title listing of all public Federal Government publications, both historic and 

electronic, and increase the visibility and use of Government information products, including 

eBooks. In the past year, over 230 free Government eBooks from various agencies were 

made available in the CGP with more continuously added. 

A major undertaking of the program is the National Bibliographic Records Inventory 

Initiative (NBRII). The initiative comprises various multi-year projects to bring fugitive 

material and historic publications under bibliographic control and to make those records 

available through the CGP. In FY 2015, LSCM completed holdings records for 39,882 serial 

issues, transcribed bibliographic records for 47 drawers of the historic shelf list, added about 

1,034 bibliographic records through five cooperative cataloging partnerships. These various 

NBRII projects will be on-going in FY 2016 with the addition of two new cooperative 

cataloging partners and the creation of holding records for historic issues of serial titles. Prior 

years transfer funds will be used to fund on-going historic cataloging efforts in FY 2017. The 

FY 2017 appropriation request has been reduced due to the availability of these transfer 

funds. 

International Exchange Service

As authorized by Section 1719 of Title 44, U.S.C., and pursuant to an international treaty 

establishing the exchange of official publications, GPO distributes U.S. Government 

publications in microfiche, print and tangible electronic formats to foreign governments. In 

exchange, those foreign governments agree to send their similar government publications 

to the United States for deposit at the Library of Congress (LOC). LOC designates which 

publications are to be distributed abroad and GPO performs the actual distribution.

By-Law Distribution Program

Under various provisions of Title 44, U.S.C., GPO distributes certain tangible publications 

to recipients designated by law. Two or more copies of every publication printed by GPO 

are provided to Library of Congress (LOC), even if the publication is not distributed to the 

Federal depository libraries. In addition, the National Archives and Records Administration 

(NARA) receives up to three copies of printed publications. GPO also maintains mailing lists 

of specific publications that are designated to be distributed by law and provides copies of 

publications to foreign legations as directed by the State Department. 
F-3

GOVERNMENT PUBLISHING OFFICE

PUBLIC INFORMATION PROGRAMS 

SUPERINTENDENT OF DOCUMENTS

SALARIES AND EXPENSES

Analysis of Change 2016 to 2017

(Dollars in Thousands)

FTE Amount

FY 2016 94 $ 30,500

FY 2017

Mandatory Pay and Related Costs

Annualization of FY 2016 pay raise - 46

Pay raise for FY 2017 - 277

Within-grade increases for FY 2017 - 139

Decrease of 2 work days for FY 2017 - (73)

Total Mandatory Pay and Related Costs - 389

Total Price Level Changes - 28

Program/Project/Activity Increases (Decreases) for FY 2017

Establishment of regional depository library discard policy and process - 800

Use of approved, prior year appropriation transfer funds for approved program activities - (2,217)

Total Program/Project/Activity Increases (Decreases) for FY 2017 - (1,417)

Total Net Change - (1,000)

Total FY 2017 Appropriation 94 $ 29,500

F-4

(Dollars in Thousands)

 Agency Request

FY 2017

GOVERNMENT PUBLISHING OFFICE

SUPERINTENDENT OF DOCUMENTS

SALARIES AND EXPENSES

Analysis of Change FY 2016 to FY 2017

PUBLIC INFORMATION PROGRAMS OF THE 
F-4

GOVERNMENT PUBLISHING OFFICE

PUBLIC INFORMATION PROGRAMS 

SUPERINTENDENT OF DOCUMENTS

SALARIES AND EXPENSES

Summary

(Dollars in Thousands)

FY 2015 FY 2016 FY 2017 FY 2016/2017

Actual (1) Approved (2) Requested (3) Net Change

Summary by Program

By-Law Distribution $ 315 $ 305 $ 295 $ (10) (4)

Cataloging and Indexing 8,505 8,235 7,965 (270) (4)

Federal Depository Library 22,050 21,350 20,650 (700) (4)

International Exchange 630 610 590 (20) (4)

Total Appropriation $ 31,500 $ 30,500 $ 29,500 $ (1,000)

Summary by OMB Object Class

11 Personnel Compensation $ 7,064 $ 7,428 $ 7,613 $ 185 (5)

12 Personnel Benefits 2,138 2,080 2,284 204 (6)

21 Travel 47 52 53 1 (7)

22 Transportation of Things 592 785 802 17 (7)

23 Rents Communications and Utilities 460 117 120 3 (7)

24 Printing and Reproduction 8,000 8,000 8,000 - (8)

25 Other Services 13,029 11,695 10,278 (1,417) (9)

26 Supplies and Materials 166 339 346 7 (7)

31 Equipment 4 4 4 - (7)

Total Appropriation $ 31,500 $ 30,500 $ 29,500 $ (1,000)

(1)

(2)

(3)

(4)

(5)

(6)

(7)

(8)

(9)

F-5

Actual and obligated expenditures against the 2015 S&E Appropriation through 09/30/15 

(Consolidated Appropriations Act, 2015 P.L. 113-255). The agency also transferred $6.067M to cover 

projects related to digitization.

Amount reflects mandatory increases for personnel and price level increases with a reduced request for 

Other Services for Cataloging and Indexing and FDsys projects that are to be funded through prior-years 

transfer funds.

Reflects anticipated benefit expenditures based on 30% of Personnel Compensation figure.

Reflects price level increase due to inflation.

FY 2016 approved and obligated funding through 09/30/2016. (Consolidated Appropriations Act, 2016 

P.L. 114-113) The approved funds reflect a reduction in appropriation factors for all personnel and 

other expenses are being absorbed through a reduction in contractual services being funded through 

Includes Workers' Compensation, Shared Services, overhead and contractual services. Inflation has been 

applied to all categories. Contractual services has been reduced due to on-going activities funded 

through prior years transfer funds.

Due to the transition from traditional printing to digital information, printing expenses are expected to 

remain flat with volume reductions off-setting cost increases.

Requested amount is based on FY 2016 funding levels with mandatory increases for salary and all nonsalary categories. Personnel compensation was calculated based on staffing needs, pay rates and work 

days for the year. The agency is utilizing prior year transfer funds to cover projects that support the 

transition from traditional printed material to digitized information to align with the Agency goal to 

provide greater access to Government information to the public. The use of these funds for continued 

Amount reflects the funding of merit and within grade and mandatory pay increases and two less work 

days for 94 FTEs for FY 2017. 

(Dollars in Thousands)

GOVERNMENT PUBLISHING OFFICE

SUPERINTENDENT OF DOCUMENTS

SALARIES AND EXPENSES

Summary

PUBLIC INFORMATION PROGRAMS OF THE 
G-1

GOVERNMENT PUBLISHING OFFICE 

BUSINESS OPERATIONS 

REVOLVING FUND

Fiscal Year 2017

Proposed Appropriations Language:

For payment to the Government Publishing Office Business Operations Revolving Fund, 

[$6,832,000] $7,832,000, to remain available until expended, for information technology 

development and facilities repair: Provided, That the Government Publishing Office is hereby 

authorized to make such expenditures, within the limits of funds available and in accordance 

with law, and to make such contracts and commitments without regard to fiscal year limitations 

as provided by section 9104 of title 31, United States Code, as may be necessary in carrying 

out the programs and purposes set forth in the budget for the current fiscal year for the 

Government Publishing Office business operations revolving fund: Provided further, That not 

more than $7,500 may be expended on the certification of the Director of the Government 

Publishing Office in connection with official representation and reception expenses: Provided 

further, That the business operations revolving fund shall be available for the hire or purchase 

of not more than 12 passenger motor vehicles: Provided further, That expenditures in 

connection with travel expenses of the advisory councils to the Director of the Government 

Publishing Office shall be deemed necessary to carry out the provisions of title 44, United 

States Code: Provided further, That the business operations revolving fund shall be available for 

temporary or intermittent services under section 3109(b) of title 5, United States Code, but at 

rates for individuals not more than the daily equivalent of the annual rate of basic pay for level 

V of the Executive Schedule under section 5316 of such title: Provided further, That activities 

financed through the business operations revolving fund may provide information in any 

format: Provided further, That the business operations revolving fund and the funds provided 

under the heading “Public Information Programs of the Superintendent of Documents” may not 

be used for contracted security services at GPO’s passport facility in the District of Columbia. 

(Legislative Branch Appropriations Act, 2016.)

Base Budget Review:

By law, GPO’s Business Operations Revolving Fund is used to finance GPO’s publishing 

operations. Approximately 70 percent (excluding Security and Intelligent Documents) of GPO’s 

publishing revenue is from procuring publications and related services for customer agencies. 

This work is procured through GPO’s Customer Services business unit utilizing the private 

sector printing and information product industry. The majority of the Government’s publishing 

requirements are effectively satisfied through this procurement activity because the highly 

competitive process provides access to the vast resources, expertise, and specialization within 

the commercial sector at the most cost effective price.

GPO’s in-plant facility provides digital and tangible products in support of the information and 

day-to-day business needs of Congress and Federal agencies. GPO produces the Congressional 

Record overnight when Congress is in session, and bills, hearings, documents, reports and 

committee prints in time to support Congress’ legislative needs. Also produced are the Federal 

Register, the Code of Federal Regulations, and other key Government documents, such as the 

annual Budget of the U.S. Government.

With a few exceptions, the paper used to produce tangible documents by GPO and its 

contractors meets or exceeds Federal recycled paper requirements and all GPO inks are 

manufactured from vegetable oil in accordance with the Vegetable Ink Printing Act of 1994.

GPO plays a critical role in America’s security by producing secure Federal credentials, 

including the U.S. Passport for the Department of State, that combine digital and print 
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security measures. GPO’s publications sales program provides the public with an opportunity 

to purchase a wide variety of low cost, consumer-oriented publications, Congressional 

documents, and Executive and Judicial publications.

Documents can be ordered through GPO’s secure Online Bookstore site at http://bookstore.

gpo.gov or from GPO’s bookstore in Washington, DC. Free and low cost publications are 

distributed through the Federal Citizen Information Center (FCIC) in Pueblo, CO. GPO 

also provides warehousing and publication distribution services for Federal agencies on a 

reimbursable basis. Thousands of titles are for sale at any given time, including books, CDROMs, eBooks and other digital formats.

BUSINESS OPERATIONS REVOLVING FUND REQUESTS

For FY 2017, GPO is requesting a total of $7,832,000 for the Business Operations Revolving Fund to 

remain available until expended, for the following projects:

Information Technology Cybersecurity Projects

Security Enhancements for Advanced Persistent Threat $ 1,500,000

Wireless Intrusion Prevention 100,000

Log Collector (Tech Refresh) 100,000

Total Information Technology Cybersecurity Projects 1,700,000 

FDsys Projects

 

General System and Collection Development 3,400,000

Next Generation FDsys Public Website 450,000

Infrastructure 325,000

Total FDsys Projects 4,175,000 

Facilities Projects

Upgrade Electrical Panels/Wiring 200,000

Uninterrupted Power Supply for Data Center 257,000

Emergency Power Generator 500,000

Elevators 39, 40, 41 1,000,000

Total Facilities Projects 1,957,000

Total Business Operations Revolving Fund Requests $ 7,832,000
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Information Technology Cybersecurity Projects

 

InSecurity Enhancements for Advanced Persistent Threat ($1,500,000). Required for 

enhanced technologies and services to combat, detect, and prevent advanced persistent threats 

from compromising GPO systems.

Wireless Intrusion Prevention ($100,000). Required to provide enhanced ability to detect and 

prevent intrusion attempts specifically targeted to wireless systems at GPO. 

Log Collector (Tech Refresh) ($100,000). Required to replace old, near obsolete log collector 

systems in order to have sufficient audit log trails for security investigations and detection/

prevention of intrusion attempts.

FDsys Projects

General System and Collection Development ($3,400,000). Development of new FDsys 

features to support identified needs of key stakeholders, including developing new content 

collections, increasing content in existing collections, enhancing the accessibility of content and 

increasing the discoverability of information.

Next Generation FDsys Public Website ($450,000). Completion of development and 

switchover to FDsys next generation to support a responsive user interface, search engine 

replacement, publication linking, user interface improvements and content curation.

Infrastructure ($325,000). Infrastructure for hardware, storage, and environments to manage 

system performance as FDsys content and usage continues to grow.

Facilities Projects

Upgrade Electrical Panels/Wiring ($200,000). This is to address the obsolete and deteriorating 

central power distribution feeds original to the building complex. They represent a safety 

hazard.

Uninterrupted Power Supply (UPS) for Data Center ($257,000). The current UPS design and 

equipment are both obsolete. To ensure equipment integrity in the data center, these systems 

need to be replaced.

Emergency Power Generator ($500,000). This is to enable more electrical load to remain “up” 

during power outages. 

Elevators 39, 40, 41 ($1,000,000). These elevators are the main vertical artery for Plant 

Operations to get products between Press and Bindery. 
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GOVERNMENT PUBLISHING OFFICE

BUSINESS OPERATIONS REVOLVING FUND

Analysis of Change 2015 to 2016

(Dollars in Thousands)

GOVERNEMNT PUBLISHING OFFICE

BUSINESS OPERATIONS REVOLVING FUND

Analysis of Change FY 2016 to FY 2017

(Dollars in Thousands)

FY 2017

Agency Request

FTE Amount

Obligational Authority, FY 2016 1,740 $ 715,432

Non-recurring Costs - Equipment to be obligated in FY 2016 - (49,744)

Mandatory Pay and Related Costs

Annualization of FY 2016 pay raise - 646

Pay raise for FY 2017 - 3,844

Within-grade increases for FY 2017 - 1,971

Decrease of 2 work days for FY 2017 - (1,457)

Total Mandatory Pay and Related Costs - 5,004

Total Price Level Changes - 10,305

Program/Project/Activity Increases for FY 2017

Capital expenditures equipment, systems, and facilities - 15,666

Security Enhancements for Advance Persistent Threat - 1,500

Wireless Intrusion Prevention - 100

Log Collector (Tech Refresh) - 100

FDsys General System and Collection Development - 3,400

FDsys Next Generation Public Website - 450

FDsys Infrastructure - 325

Upgrade Electrical Panels/Wiring - 200

Uninterrupted Power Supply for Data Center - 257

Emergency Power Generator - 500

Elevators 39, 40, 41 - 1,000

 - 7,832

Net change requested - $ (10,937)

Total Budget FY 2017 1,740 704,495

Total Offsetting Collections - 696,663

Total FY 2017 Appropriation - $ 7,832

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Capital Expenditures to be funded by an Appropriation

Total Expenditures to be funded by an Appropriation
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GOVERNMENT PUBLISHING OFFICE

BUSINESS OPERATIONS REVOLVING FUND

Summary by Object Class

(Dollars in Thousands)

GOVERNEMNT PUBLISHING OFFICE

BUSINESS OPERATIONS REVOLVING FUND

Summary By Object Class

(Dollars in Thousands)

FY 2015 FY 2016 FY 2017 FY 2016/2017

Object Class Actual Enacted Request Net Change

11 Personnel Compensation $ 145,269 $ 144,475 $ 148,140 $ 3,665

12 Personnel Benefits 48,759 52,801 54,140 1,339

21 Travel 708 819 837 18

22 Transportation of Things 10,193 9,235 9,438 203

23 Rents, Communications and Utilities 15,860 17,250 17,630 380

24 Printing and Reproduction 307,414 267,293 273,173 5,880

25 Other Services 36,299 42,446 43,380 934

26 Supplies and Materials 142,309 131,369 134,259 2,890

31 Equipment 32,900 49,744 23,498 (26,246)

Total Budget $ 739,711 $ 715,432 $ 704,495 $ (10,937)

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GPO

U.S. GOVERNMENT PUBLISHING OFFICE

732 North Capitol Street, NW, Washington, DC 20401

www.gpo.gov | Keeping America Informed | www.fdsys.gov